PennDesign Planning Studio 2013

PENN DESIGN STUDIO

RACHEL ALAND Master of City Planning, STIP (‘13)

JEZREEL APELAR Master of City Planning, PPD (‘13)

KATHLEEN BOLE Master of City Planning, PPD (‘13)

BRYAN BARNETT-WOODS Master of City Planning, STIP (‘13)

LUCIENNE CANET Master of Architecture / City Planning, STP (‘13)

OLIVIA CHO Master of City Planning, PPD (‘13)

MARC DREYFUSS Master of City Planning, STIP (‘13)

RICHARD FREEH Master of City Planning, STIP (‘13)

HENG (GRACE) GAO Master of City Planning, STIP (‘13)

ADITYA INAMDAR Master of City Planning, PPD (‘13)

SAMANTHA KUNTZ Master of Historic Preservation / City Planning, CED (‘14)

JIMMY LY Master of City Planning, PPD (‘13)

stu dio tea m

MATTHEW MORAN Master of City Planning, STIP (‘13)

BOWEN QIU Master of Architecture (‘13)

SARAH VANLANDINGHAM Master of Historic Preservation (‘13)

FANGRU WANG Master of City Planning, STIP (‘13)

JOSHUA WAGNER Master of City Planning, STIP (‘13)

SCOTT WEBER Master of City Planning, STIP (‘13)

SYDNEY ZIMELIS Master of City Planning, PPD (‘13)

PennDesign Planning Concentrations: (CED) Community & Economic Development; (PPD) Public Private
Development; (STIP) Sustainable Transportation & Infrastructure Planning

Reimagining Penn Station i

ACKNOWLEDGEMENTS
The Penn Station Studio has been honored to receive a great level of support from many contributors, ranging from
seasoned professionals to acclaimed scholars in the fields of urbanism, transportation planning, design, economics,
and historic preservation. We offer our sincere thanks to AECOM, Dan Rose, Mercator Advisors, Parsons Brinckerhoff,
PennDesign’s Office of the Dean, and PennDesign’s Office of City and Regional Planning, whose generous support sent
our team to London for a week-long planning workshop in London, United Kingdom.

Our team would also like to those who made our Spring Charrette – held in London from March 4-8, 2013 – a successful
venture into the world of international transportation planning. We are grateful to Vincent Goodstadt, Former President of
the Royal Town Planning Institute and Honorary Professor at the University of Manchester, for his organization of speakers,
tours, and events, and to KPF Associates for generously providing with a space in which to work out our plans.

The studio also thanks the many individuals who gave our team their knowledge, resources, and time to help us conceive
of a Penn Station for future generations. We would like to recognize the following individuals whose creativity and support
elevated this project to a new level of success:

MARLYN JORDAN TAYLOR* Dean and Paley Professor, PennDesign / Former Partner of Urban Design
and Planning Practice, Skidmore Owings & Merrill, LLP
penn faculty

ROBERT YARO* Professor of Practice, PennDesign / President, Regional Plan Association

DR. PETER ANGELIDES PennDesign / Vice President & Director, Econsult Corporation

STEFAN AL Associate Professor of Urban Design, PennDesign

EUGENIE L. BIRCH Lawrence C. Nussdorf Professor of Urban Research & Education, Chair of
the Graduate Group of City Planning, PennDesign

DR. JOHN LANDIS Crossways Professor of City & Regional Planning, Dept. Chair, PennDesign

RICHARD WELLER PennDesign / Winthrop Professor of Landscape Architecture, University of

Western Australia

* Studio Instructors

Reimagining Penn Station iii

 LORD ANDREW ADONIS Former Secretary of State, Transport for the United Kingdom

european associates & charrette participants MARTIN AARTS Head of Urban Planning, City of Rotterdam

JOHN ANDERSON Chairman, Berkeley Homes

HIRO ASO Director of Master Projects, John McAslan + Partners

MICHAEL BRYANT Operations Executive, Canary Wharf Contractors Limited

DR. ARMANDO CARBONELL Senior Fellow & Chairman of the Department of Planning and Urban Form,
Lincoln Institute of Land Policy

LAURIE CUSINATO Transit-Rail Business Development Coordinator, AECOM

JULIE DAVIES Land Use Planning Manager, Crossrail Limited

GROET DE ROEY Projectregisseur Stadsprojecten, City of Antwerp

ANDREW DORRIAN South & West Planning Team, Transport for London ( TfL)

ANDRÉ GIBBS Partner, Argent LLP

VINCENT GOODSTADT RTPI & ECTP Board Member & Hon. Professor, The University of Manchester

MAARTEN KROES Associate Director, Network Rail Consulting

ESTHER KURLAND Director, Urban Design London

PATRICK McLOUGHLIN Secretary for Transport, The United Kingdom

JOHN McNULTY Director, John McNulty Integrated Transport / Former Head of TfL
Interchanges Unit

DR. FIONA ORSINI Curator, Royal Institute of British Architects

MARK PISANO Senior Fellow, Price School of Public Policy, University of Southern California

NICK SEARL Partner, Argent LLP

MARTIN SIMMONS Regional Planner and Former Chief Planning, London Planning Advisory Committee

TIM SMART Head of Engineering and Operations, HS2 LTD

JUNE TAYLOR Former Research Associate, Sinstropher Project, University College of London

VALERIE VAN DE VELDE Coordinator Kennisuitwisseling, City of Antwerp

KOEN VAN LACKER External Relations - Mobility, B-Holding (Belgian Railways)

iv PennDesign Planning Studio 2013

 RICHARD BARONE Director of Planning, Regional Plan Association

KEVIN CORBETT Vice President, Strategic Development, AECOM

DOREEN FRASCA Principal, Frasca & Associates, LLC

DREW GALLOWAY Chief of Corridor Development, Amtrak

professional associates

ROGER GOODHILL Senior Designer, AECOM

MICHAEL KIMMELMAN Architecture Critic, The New York Times

ROBERT LANE Senior Fellow for Urban Design, Regional Plan Association

PETRA TODOROVICH MESSICK Senior Officer of Outreach and Development for the Northeast Corridor, Amtrak

DR. FOSTER NICHOLS Vice President, Parsons Brinckerhoff

HOWARD PERMUT President, MTA Metro-North Railroad

ERIC ROTHMAN President, H R & A Advisors

DAVID SELTZER Co-Founder, Mercator Advisors, LLC

DAN SCHNED Senior Planner, Regional Plan Association

KRISTOPHER TAKACS Associate Director, Skidmore, Owings & Merrill, LLP

CHRIS WARD Executive Vice President, Dragados USA

JEFF ZUPAN Senior Fellow, Transportation, Regional Plan Association

The Studio Team additionally offers a special thanks to:

LOWRI BANFIELD Kohn Pedersen Fox Associates, London

KATE DANIEL Department Coordinator, PennDesign

KAIT ELLIS Executive Secretary to the Dean, PennDesign

Reimagining Penn Station v

TABLE OF CONTENTS

Source: MCNY

vi PennDesign Planning Studio 2013

FRONT MATTER Studio Team.................................................................................................................................... i

Acknowledgments.................................................................................................................iii

Executive Summary..................................................................................................................2

INTRODUCTION Why Penn Station, Why Now?......................................................................................22

History of Penn Station......................................................................................................26

Existing Conditions...............................................................................................................30

Gateway........................................................................................................................................34

Meeting the Challenge.....................................................................................................36

INTERVENTION Madison Square Garden..................................................................................................42

Transportation & Station Design

Analysis........................................................................................................................44

Design..........................................................................................................................66

Resiliency in Design...........................................................................................90

District Design & Development

The Empire Center..............................................................................................96

Designing the Public Realm.......................................................................102

The Midtown West Innovation District..............................................112

IMPLEMENTATION Leadership and Financing...........................................................................................130

Funding Scenarios.............................................................................................................139

Phasing.......................................................................................................................................144

C O N C L U S I O N Next Steps................................................................................................................................152

A P P E N D I X Supplementary Material.................................................................................................A.1

Reimagining Penn Station vii

EXECUTIVE SUMMARY

Lofferondon. Tokyo. Antwerp. Beijing. Around the world, truly great train
stations are a vital piece of the fabric of great cities. These stations
superior transit access, particularly with the advent of high-speed
rail, providing commuters and intercity travelers an ennobling and
exhilarating experience each time they enter or exit a train, while also
catalyzing real estate development and offering a meeting place and
commercial venue for the community. New York has one such station:
Grand Central Terminal. But once, it had two.

To some, the original Penn Station, designed by built from the tracks up to support next-generation
Charles McKim and operated through the first half high-speed rail. Doing so will transform not only
of the 20th century, was the greatest train station the immediate district around Penn Station, but the
not only in New York, but in the entire world. Its economic future of the entire New York region.
demolition and replacement with the existing Penn
Station (in the basement below Madison Square And yet, why now?
Garden) has been cited as the origin of the historic
preservation movement, and remains a sore subject Plans to rebuild or redesign Penn Station have
for New Yorkers to this day. been in development seemingly since the day the
The proposal that follows will not rebuild the existing station opened. What makes this proposal
original Penn Station. Instead, this studio seeks any different?
to do better for New York, constructing a global
gateway worthy of McKim’s legacy but grounded Key to the concept of this studio is the idea that
in 21st century planning and design principles and the re-imagination of Penn Station is no longer

2 Reimagining Penn Station

 The Design that will become the identity of the new Penn
Station. It will be tall and spacious with a glass and
In order to address such a complex structure, where steel roof bringing natural light inside. It will also
vertical circulation is as important as horizontal have visual connections to Level A as well as to the
circulation and where each square foot must be track and platform level, creating direct visual links
carefully programmed to the needs of multiple between visitors and passengers with trains.
users, we conceived a sectional approach that
begins at the base track and platform level and The Gateway Hall will include and be surrounded
moves upwards to the city. by high-end retail and restaurants as well as long
distance and high-speed rail information kiosks
TRACK AND PLATFORM and other associated conveniences for passengers.
New concourses and connectors will help guide
We propose two options for future service at Penn pedestrians headed east from Penn Station.
Station’s, which differ only in the course of phasing
in the improvements and the degree of operations STREET LEVEL
throughout construction. Both track and platform
plans resolve issues related to safety and security Currently there is no identity for the station at street
of passengers and add much-needed capacity to level except for the stairs and escalators that take
Penn Station. The platforms are widened to 30’ passengers below. This plan proposes a grand new
and new egresses with escalators and elevators hall and train shed that will establish an identity for
are introduced to address challenges of safety and the new Penn Station. This new building will become
security. 4 new platforms and 8 new tracks - for a a hub for urban regeneration in Midtown West
total of 8 platforms and 16 tracks - are added under Manhattan. The plan proposes large public plazas to
Block 780 as part of the Gateway project. As phasing create a pedestrian realm that will effectively handle
alternatives, the Long Island Rail Road tracks can large pedestrian flows in and out of Penn Station.
remain as is or be widened to the new standard, Retail and concessions will bring life to the sidewalks
contingent on LIRR service continuing at Penn on 33rd and 31st Streets and also offer internal views
Station or the introduction of new MTA services. overlooking the Main Hall of the station.

CONCOURSE LEVEL A Comprehensive Vision

On the Level A Concourse, a clear, high-capacity The plan for Penn Station fundamentally redesigns
circulation system takes passengers from Platform all four levels of the facility while enhancing
level to Level A and above. North-South Concourses connections to nearby neighborhoods and districts
do not have any other use than public circulation and on all sides. It adds much-needed capacity, brings
are kept clean of any visual clutter. These concourses the station to contemporary safety and security
connect to the existing 33rd Street Connector and a standards, and creates an iconic new station building
new 31st St. Connector; these act as wide corridors with an enhanced and “ennobling” experience to
flanked by convenience retail for travelers on the create a grand gateway.
move. The connectors will link existing subway
stops at 7th and 8th Avenue on 33rd Street and new
subway stops at 7th and 8th Avenue on 31st Street.
New subway stops are designed to add capacity to
already overburdened subway stops at 33rd Street
while also reducing walking distance for users on the
new platforms beneath Block 780.

GATEWAY HALL LEVEL

Level B will offer the iconic and memorable space

8 Reimagining Penn Station

Source: A. Rose, MCNY Collection

20 PennDesign Planing Studio 2013

INTRODUCTION
Our approach for designing a new Penn Station assumes
that “world class cities require world class gateways.”
But why Penn Station, why New York, and why now?
In order to develop a plan for revitalizing Penn Station,
we must first understand why a plan is necessary. The
following analyses the station’s historical significance
and relationship to the city, existing station and urban
conditions, future transportation needs, and international
precedents have led us to one overriding conclusion: this
is Penn Station and New York’s moment in time. This
concept serves as the guiding principle for our vision of
a new Penn Station.

Reimagining Penn Station 21

IMPERATIVES FOR CREATING A 21ST CENTURY PENN STATION

W orld class cities require world class gateways. As entrances to a city,

train stations serve both a symbolic and prosaic function, acting as
the entry point for regular commuters and occasional visitors while also
reflecting the grandeur and vision of their cultures. Stations like Antwerp
Centraal, Shinagawa Station in Toyko, and St. Pancras and King’s Cross in
London are vital parts of the urban fabric, key transportation nodes, and
manifestations of the past, present, and future of their cities.

New York City is no different. Grand Central Terminal a marvel of Beaux Arts design, serving as a model
in Midtown Manhattan is one of the world’s great for architects around the world. Its demolition as
train stations, offering commuters entering the city part of a 1960s urban renewal scheme (including
through MetroNorth’s commuter rail service an the construction of a new Madison Square Garden
ennobling and exhilarating experience. But riders at street level) was judged a mistake even as it
on Amtrak, New Jersey Transit, or the Long Island happened, and served as the catalyst for the historic
Rail Road face a different entrance to the city: the preservation movement in New York and around
overcrowded, difficult to navigate, and aesthetically the country.
unlovable Pennsylvania Station.
Despite the cramped and uninviting experience
In the first half of the 20th century, Penn Station provided by Penn Station today, more people enter
matched and arguably exceeded Grand Central as the city through the station every day than from
an aesthetic and practical gateway to New York. The all of the New York-area airports combined. A new
original station, designed by Charles McKim, was Penn Station has the potential to impact the lives of

22 PennDesign Planing Studio 2013

 Penn Station is the largest
Amtrak hub, not only in
Northeast Corridor, but
across the nation

Source: Michael Hicks

New York City is the

lynchpin of the Northeast
Megaregion, an area of
over 52 million people
and $3 trillion in annual
economic activity.

Source: PennDesign HSR Studio 2010

Reimagining Penn Station 25

TRAJECTORY OF PENN STATION THROUGH HISTORY

T he original Penn Station was a crowning achievement for the

Pennsylvania Railroad. It was not only an architectural landmark but,
indeed, a monument to technology. The original station was built at a
time of technological innovation - electrified trains. Now over a century
past that moment in time, we have reached yet another pivotal moment
of innovation in the form of high-speed rail.

McKim’s Penn Station

in its prime. For over 50
years, spanning 1910 to
1963, the Neoclassical
monument was a
prominent feature of New
York City’s transportation
and cultural identity.

Source: New York Public Library

26 PennDesign Planing Studio 2013

CONDITIONS THE CURRENT MANIFESTATION OF PENN STATION

O ver 600,000 commuters and travellers make their way each day
into and out of Penn Station, making it the busiest rail station in the
United States. Three operators - Amtrak, Long Island Rail Road, and New
Jersey Transit - are forced to share an increasingly crowded and difficult
to navigate maze of concourses and a limited number of tracks and
platforms. At-capacity conditions mean longer dwell times, potentially
unsafe levels of crowding, and inefficient operations. The station requires
an intervention to achieve greater capacity, reliability, and resilience.

Pennsylvania Station is located in Midtown West for development to draw commuters and travelers
Manhattan, bounded by 33rd Street to the north, west toward new developments like the Hudson
31st Street to the south, 8th Avenue to the west, Yards.
and 7th Avenue to the east. The Farley Post Office
Building faces Madison Square Garden across 8th Beyond Penn Station’s role in New York City, it also
Avenue. holds a vital place in a regional and national network
of trains that extends both between New Jersey
Between the Penn Station and the Hudson River to and Long Island and to points north and south
the west, underbuilt blocks fail to capitalize on their along the Eastern Seaboard and beyond. Sustaining
development potential. A new station could have an and expanding these links to and through Penn
immediate effect on surrounding real estate values. Station, will ensure that these corridors continue
Rather than commuters reaching Penn Station and to accommodate the growing needs of the region
walking east or immediately transferring to subways throughout the 21st century.
to take them north or south, there is the potential

30 PennDesign Planing Studio 2013

 In addition, the station itself has been the focus of The intentions of these plans have been incorporated
recent interest. AECOM’s Penn Station Visioning into the comprehensive “one station” approach that
Study, the Moynihan Station Project, and the Gateway we will set forth to improve the physical conditions at
Project are all proposals specific to redeveloping Penn Station. This approach will allow for significant
Penn Station. AECOM’s Penn Vision study looks operational improvement that does more than
at architectural and urban design elements from bring infrastructure up to date and ensures that
the context of improving existing passenger and Penn Station remains a vibrant transport hub.
train flows. The Moynihan Station Project looks at
drawing Penn Station west and providing a gateway Our proposal improves the passenger experience
experience, as well as much needed circulation and offers a new level of connectivity by building
between platforms and street level. upon Penn Station’s influential reach to better serve
the populations and the economies in the region.

View of a busy concourse

at Penn Station on the eve
of Thanksgiving 2008

Source: hello turkey toe via Flickr

32 PennDesign Planing Studio 2013

 G AT E WAY TRANSFORMING RAIL CAPACITY BENEATH PENN STATION

T ransforming Penn Station entails integrating transportation planning

and investment well beyond the station’s footprint. Amtrak’s proposal
to introduce world-standard high-speed service to America’s Northeast
Corridor--currently under environmental review--will require new
passenger services and expanded capacity at Penn Station, the lynchpin
of the NEC system.

Reliable and resilient rail services to and from Penn Queens. Additional station capacity will be provided
Station are limited by capacity in the tunnels beneath by the transformation of the existing Farley Post
Penn Station to points east, north, south, and west. Office facility into a new part of the Penn Station
With train movements at capacity, additional space complex.
will be required to introduce new transformative rail
services through Penn Station. Gateway is essential to providing the accessibility
and reliability required to support commuter,
Amtrak is currently investigating the provision of this regional, and high-speed rail services throughout
new capacity via its Gateway Program. Gateway will the Northeast Corridor. The interventions that follow
construct two new Hudson River tunnels, as well will take Gateway as a starting point for expansion
as expanded and enhanced interlocking, directly both at the track and platform level and as a basis for
beneath the Penn Station. The Gateway Program capacity expansion, which will impact the station at
begins in New Jersey at Newark, extending east the concourse levels.
through Penn Station to the Harold Interlocking in

34 Reimagining Penn Station

PROJECT SCOPE MEETING THE CHALLENGES OF REIMAGINING PENN STATION

N ew York needs a Pennsylvania Station that acts as an urban landmark,

a welcoming civic gateway encompassing both the past heritage
of the lost station and modern transportation planning practices to
meet increasing demands for capacity, efficiency, safety, and station
experience. A new station will improve experience for high-speed
and commuter rail while simultaneously revitalizing the surrounding
community. By 2030, the reimagined station will provide residents and
visitors with a distinctive destination and a physical testament to the
greatness of New York City embedded within an active urban fabric.

In the space where historic Penn Station once stood, a plan. Our plan incorporates a vision for the future
modern Penn Station offers a cramped maze of of rail travel in and out of the station, a real estate
uninviting spaces that do not suit the transportation program for Midtown West, and a funding, financing,
needs nor the aspirations of those who enter New and project delivery strategy. This comprehensive
York City through its narrow subterranean corridors. perspective was developed both through site-
specific analysis in New York City and international
The course of this studio project included case studies, which were shaped into a vision with
initial analysis, a review of pressing imperatives, contributions from a group of experts that included
consultation with experts in the field both in public officials, academics and accomplished private
the United States and abroad, and finally the sector consultants. These experts were well versed in
development of a set of key issues, a list of goals, and the history of attempts to redesign Penn Station, as

36 PennDesign Planing Studio 2013

Source: M. Moran

40 PennDesign Planing Studio 2013

INTERVENTION
Having set the parameters of our proposal, the pages
that follow outline our vision for a comprehensive
transformation of New York Penn Station. This vision
contains three key components: the clearance of
the existing site and development of a new iconic
station guided by historic precedent; reconstruction
of track and platform-level infrastructure to alleviate
congestion and provide capacity for new high-
speed rail services; and a long-term real estate
strategy for the area around the station, reimagined
as an innovation district catalyzed by Penn Station’s
enhanced connectivity to the region and the globe.

Reimagining Penn Station 41

THE GARDEN RESOLVING THE CONSTRAINTS OF MADISON SQUARE GARDEN

M adison Square Garden sits atop the current Penn Station, providing
tremendous transit access for the facility’s sports and entertainment
events. However, this access comes at a price: its precarious position
makes renovations difficult and expensive, and the Garden is increasingly
seen as a functionally obsolete venue. Madison Square Garden has
moved in the past and, given New York’s need for both a monumental
train station and a world-class entertainment center, should move again.

MSG, completed in 1968, is in its fifth incarnation The Penn Design studio team analyzed nine sites
on its fourth site. The original MSG was built in in Manhattan that would be capable of holding an
close proximity to Madison Square Park in 1879 and arena; all included two contagious blocks where
eventually moved to a site on 8th Avenue at 50th no residential buildings or major commercial
Street in 1925. The current 20,000 seat arena was establishments would have to be acquired/
build over Penn Station when the Pennsylvania Rail demolished.
Road, facing bankruptcy, demolished the above-
ground portion of the station and sold the above- The team narrowed these down to three sites
ground rights to developers. (shown at right) that are all government owned, in
close proximity to public transportation, and on sites
In addition to limiting the ability to expand Penn that could accommodate a large arena. One of these
Station, Madison Square Garden itself is limited by sites will provide a new Madison Square Garden with
its location; servicing conflicts are frequent, with the ability to accommodate the New York Knicks
crowded loading docks and curbsides slowing the and Rangers, large-scale concerts, and other events
flow of materials for events and limiting their scope. in a state-of-the-art, transit-accessible venue.

42 Reimagining Penn Station

STATION DESIGN TRANSPORTATION PLANNING, ARCHITECTURE, PUBLIC REALM, AND PRESERVATION

P hysical design is one of the most important aspects of developing a

vision for New Penn Station. Seeing the possibilities for change will
help multiple stakeholders as well as the public at large understand
the true potential of this project. It will also generate momentum and
excitement for developing a new gateway to New York City, and the
Northeast megaregion that is both ennobling and exhilarating.

The core of Penn Station’s redesign is to increase Penn Station has a long and layered history. These
the station’s train capacity, thereby keeping the incarnations of Penn Station also play a role in the
station for future ridership increases. Currently, proposed design of New Penn Station. A detailed
Penn Station operates at capacity and without historical analysis is included in this section.
expansion, the station will become obsolete. This
proposed new design incorporates findings from Finally, the technical findings from a detailed
an extensive analysis of the site, its history, and its transportation analysis along with circulation and
existing conditions. typology recommendations inspired by the original
Penn Station lead to the section’s conclusion: a
This section begins with the state of transportation design concept for New Penn Station.
at Penn Station. The projections of future passenger
Existing Service
counts, and the required additional train movements
will guide the new design. This section then moves The busiest rail hub in the United States, Penn

on to an architectural analysis of the existing Penn Station, is currently running at maximum capacity.

Station in terms of train and people circulation, Three operators use the station proper: Amtrak,

building program, structure, and user experience. MTA Long Island Railroad, and New Jersey Transit,
while the MTA Subway operates 6 lines along the

44 Reimagining Penn Station

current conditions | transportation
east and west edges. Every day during the morning or a single operator, none of them take an extensive
and evening peak traffic hour, the 60-65 trains that and comprehensive approach towards increasing
enter and leave the station are forced to jostle for and balancing capacity for the station as a whole.
an available slot on one of the station’s 21 tracks. A Our proposal incorporates the findings of these
single delay can have exponential effects, affecting studies into one cohesive approach to maximize the
the commute schedules of tens of thousands of benefits to the region.
commuters on an everyday basis.
East Side Access, taking place across town in the
Additionally, there is a real need for additional train depths below Grand Central Terminal and under
movements to accommodate growing passenger the direction of the MTA is planned for completion
demand. Amtrak, the regional and intercity rail around 2020. This project will serve Long Island
service operating out of Penn Station, has shown Rail Road by redirecting trains to Grand Central
unprecedented ridership growth over the past Terminal instead of Penn Station. Once this new
decade. However, due to capacity constraints terminal opens at Grand Central and a significant
between Newark and New York City, Amtrak has been number of trains currently entering Penn Station are
unable to increase frequency of service through this diverted, there will be a window of opportunity for
central hub. New Jersey Transit has had a 62.5% the reorganizing and diversifying operations at Penn
increase in ridership over the past two decades with Station. While the demand for LIRR train operations
the highest percent ridership increases on the lines at Penn Station will decrease, the new space will
to the north and west of Penn Station. In order to provide the chance to add new services from other
provide one-seat rides into Penn Station that can operators into Penn Station. For example, upon the
meet future demand from New Jersey; adjustments, opening of East Side Access, Metro North Railroad,
reconfigurations, and additional tracks, platforms, which currently operates all its West-of-Hudson
and tunnels that connects commuters and travelers services into Grand Central Terminal, has proposed
to Manhattan need to be added to allow for more rerouting some trains on its Hudson and New Haven
train movements per peak hour to enter the station. lines into Penn Station via existing active rail track.

The existing tracks at Penn Station are prone to Gateway, a proposal from Amtrak and Senator Frank
delays and difficult to operate reliably. This is due Lautenberg (D-NJ) replaces the canceled ARC Tunnel
to the complexity of the operations including LIRR project that would have opened an additional two
trains entering the station from both the West Side tracks under the Hudson River, primarily for usage
Yard and Long Island, NJT trains from Sunnyside by New Jersey Transit. In the Gateway plan, two
yards and New Jersey, and the high number of trains new tracks, parallel the alignment of the existing
that currently drop off passengers, turn around, and North River Tunnels under the Hudson, will end
return where they came from. at a stub terminal between 30th and 31st Streets,
immediately south of the existing Penn Station. This
Operator Proposals
would allow New Jersey transit to move most of its
In considering feasible options and suitable solutions operations into this new terminal, increasing tunnel
to the ever-growing demands at Penn Station, it is and platform space for Amtrak service.
important to consider the contributions of earlier
plans for this popular station as well as for rail in the Amtrak sees Gateway not only as a way to expand
Northeast Corridor. These proposals, one currently capacity at Penn Station, but also as another step
under construction and the others representing toward High-speed Rail, as detailed in Amtrak’s Vision
potential future changes to infrastructure and for the Northeast Corridor and the Federal Railroad
operations, may significantly affect transportation Administration’s NEC Future Plan. These plans
into and out of Penn Station in the coming decades. suggest upgrading much of the greater Northeast
However, the proposals only examine the services Corridor to true (220mph) high-speed rail in order to

PennDesign Planning Studio 2013 45

 facilitate economic growth and to encourage riders Capacity has become a serious concern for Penn
to switch to more energy efficient and convenient Station. The station will become the choke point
transportation modes. when introducing new transit services if there is
no build. This finding is derived from a series of
Taking these outside proposals into consideration, as ridership projections on each of the existing services
well as the demands for access at Penn Station and that currently utilize Penn Station. These projections
projected population growth, our design introduces use census and ridership data to estimate ridership
significant physical and operational transformations growth based on population growth in origin
to meet growing transportation demands. counties for commute trips. For NJT and LIRR
ridership projections, the Regional Plan Association’s
Taking these proposals into consideration, as well estimates were used.
as the demands for access at Penn Station and
projected population growth, this report proposes A combination of Amtrak ridership projections by
significant physical and operational changes to Metropolitan Statistical Area (MSA) and population
meet future transportation demands. projections for MSAs in the Northeast Corridor
found relatively conservative passenger increases for
Modeling Demand Amtrak. Metro North data for the New Haven Line
and Hudson Line was used to build a latent demand
Growing demands for access to the station from the
model for potential ridership to Penn Station if
northeast (Queens/Hells Gate Bridge/Connecticut),
new regional service was introduced. Air shift data
the southwest (New Jersey), and the north (Empire
included variables such as travel time and trip
Connector) require additional tracks that will allow
frequency to calculate the number of passengers
for increased train movements in and out of Penn
that would be drawn to rail with improved service
Station. The most immediate needs are from the
provision.
southwest, where only two tracks continue under
the Hudson, and the north, where only one track on
The “Projected Ridership-No Build” does not include
the Empire Connector serves Penn Station.
the increase brought by the introduction of faster

Two sets of projected

ridership compared with
the existing person and
train movements capacity.
Peak-Hour Riders

46 Reimagining Penn Station

 Investments in new infrastructure—a new track and An expanded Penn Station at the center of the
platform plan on the current Penn Station site, an Northeast Corridor will permit significant increases
extension of the tracks to the 780 block to the south, in frequency of train service to destinations as far
and additional tunnels leading into the station— south as Virginia and as far north as Massachusetts.
address the immediate demand and alleviate the These services, which can eventually be expanded
constraints on the current restrictive limits to service. or rebuilt as true high-speed rail corridors, would be
These service improvements will reduce current defined by the quantity (frequency), reliability, and
dwell times, increasing the total number of trains per quality (customer experience) of services offered.
hour. We estimate that an average of 15-20 minute Upon completion of the new tunnel and track plan,
dwell time per train could be reduced to 5 minutes new Metropolitan Services will drastically change
per train for commuter service and 8 minutes per process of travelling between cities along the
train for regional service. Peak hour departures can greater Northeast Corridor, and will induce sizable
increase from 60-65 to approximately 130 trains per latent demand, as more drivers and bus-riders
hour, once new tracks are built on the 780 block would shift to increased, more reliable, and faster rail
directly south of Penn Station, and increase to 170 service.
trains per hour once the tunnels connecting block
780 to Long Island are built. The Metropolitan Services are defined by a few
standard metrics. First, all routes are under 500
With these physical improvements and with miles, or 8 hours trip time at current speeds. This
interagency cooperation, through services can also eliminates needs for full crew changes, sleeping
be introduced. Instead of incoming trains from LIRR cars, and baggage cars. Second, ticketing could be
and NJT terminating at Penn Station, commuter streamlined through simplification of pricing and
trains could run from New Haven to Trenton or reservation policies. Due to the short distance nature
Philadelphia, from Northern New Jersey to Long of their routes, ticket prices could be standardized
Island, and from Poughkeepsie to Long Island. by travel class—general, business, and first—as well
This would decrease layover times at Penn Station as distance.
and provide more one-seat options, stimulating
economic growth for the region. The price of a ticket would not vary based on date
of purchase or seats filled, but rather would be set
similar to most commuter train operations in the
United States, with a base fare and a zone or mileage
Phasing plan of train
movements fare from origin to destination. This would not only
make the operation of these services more efficient
but would also draw people to choose trains
whenever they choose to travel, as last minute fares
would be priced the same as fares purchased far in
advance. This commuter rail style ticketing system
would also allow for easier boarding and alighting
processes along the corridor, putting an end to long
lines and early arrival requirements.

This report suggests implementation of three

initial routes, which will serve many of the popular
business and leisure travel destinations within 300
miles of New York Penn Station. The first, which will
carry the highest level of service, replaces today’s
Amtrak Northeast Regional route with travel from
Boston, MA to Alexandria, VA. Along its route are 23

48 Reimagining Penn Station

stops in 9 states and the District of Columbia. This Conclusion
will include seven points where riders can easily a
The narrow platforms and limited available tracks
transfer to trains on one of the other Metropolitan e
lead to overcrowding, and safety and security
Services. e
concerns especially during peak hours. Our research
and projections indicate that these issues are likely
The other two services will introduce one seat travel
to worsen if no action is taken. Any expected growth
options not currently offered by any rail service.
in ridership will create more congestion and more
One of these routes will travel from Harrisburg, PA
delays as operational efficiency declines.
to Boston, MA using the Keystone Corridor from
Harrisburg to Philadelphia, the Northeast Corridor
Our plan considers how to remedy the choke
from Philadelphia to New Haven, and the Inland
point of Penn Station by introducing additional
Route from New Haven to Boston. The other will link
tunnels and rethinking train movements and
Albany, NY to Ronkonkoma on Long Island using the
pedestrian circulation patterns from the track level
Empire Service Corridor from Albany to New York
up. By making these improvements, the project has
and the Long Island Rail Road Main Line from New
region-wide influence on travel patterns. To realize
York to Ronkonkoma.
the full potential of Penn Station, the physical design
of the tracks, platforms, and the tunnel system that
The Harrisburg-Springfield-Boston line will serve up
feeds into them must be reworked. Capacity of the
to 25 stops in 5 states, and will be complemented by
station must be balanced with the need to operate
a variety of existing and new commuter rail services
reliably and offer an acceptable level of service
along the same corridors provided by SEPTA, New
for passengers. These improvements will allow
Jersey Transit, Metro North Railroad, ConnDOT,
Penn Station to transform into a global gateway,
and the Massachusetts Bay Transit Authority. The
improving the travel experience for all passengers,
Albany-New York-Ronkonkoma Line will serve 11
from daily commuters to world travelers.
communities and directly connect Long Island with
the rest of New York State.

These three routes serve many of the most populated

areas and largest economies in New England and
the Mid-Atlantic, and will also help Penn Station

Diagram of a potential
intercity Metropolitan
Service

PennDesign Planning Studio 2013 49

 current conditions | architecture

Penn Station today faces multiple challenges.

The evolution of Penn Around 600,000 people travel through Penn Station
Station’s site over
the last century, from each day, reliant on the approximately 60 trains
traditional Victorian block per hour that operate through the station. Many
development at the turn
of the 19th century, to an projections indicate that this number will grow by
architectural statement more than 50% in coming years. However, Penn
of classic grandeur in
Station is functioning almost at capacity and has no
1910, and finally to the
modernized circus and scope for further expansion it unless it undergoes
tower scheme still seen
a fundamental reconfiguration. Penn Station
today.
Pre 1900 faces the challenge of meeting the demands of
increased transportation infrastructure capacity,
while also improving upon experience, security, and
programming.

While we often look to the historic station for

inspiration for the future, we must recognize that not
all aspects of the Victorian station worked perfectly.
Thus the challenges facing Penn Station today have
become opportunities to once more improve upon
the ecosystem of transportation in New York City.

1910 - 1963
We must also acknowledge those aspects of the
external environment that influence, support, and
constrain Penn Station’s growth. The chart on the
following page depicts these “immovable entities,”
which must be understood as vital elements of the
next iteration of Penn Station.

Train Circulation

Three different train operators currently use Penn

station: Amtrak operates long distance trains while
1963 - Present
Long Island Rail Road (LIRR) and New Jersey Transit
(NJT) operate shorter commuter routes. Most LIRR
trains use the northernmost platforms, while Amtrak
uses the central three to four platforms and NJT uses
those at the south end of the level. Although there
are no strict platform or track numbers assigned to
each operator, the track and platform level generally
operates with LIRR distinct and Amtrak and NJT
intermingled. Platform sharing helps maximize
existing track and platform capacity; however,
as platforms are assigned just minutes before
departure, it also creates confusion for passengers.
2030

50 Reimagining Penn Station

 A vertical diagram
highlighting immovable
entities, or those elements
that impact Penn Station
that will not be altered by
the new plans.

Pedestrian Circulation
The tracks and platforms are 44’ below street level. Combined with a complex signage system and
Pedestrian circulation
All passengers must navigate three levels before the mixing of back-of-house and retail services, patterns have been
they can reach their train. Levels A (Exit Concourse), pedestrian circulation at Penn Station is a labyrinth drastically altered since
the demolition of the
B (Waiting Hall Level), and C (Street Level) are shared that even the most regular passengers have a hard
historic station in 1963.
by all passengers regardless of which train service time navigating. The following diagrams
compare the navigation
they use.
patterns of the old and
The original Penn Station also established three existing iterations of Penn
However, most regular passengers tend to use a set levels to reach the tracks and platforms. However, Station.
circulation path or zone of the station corresponding the original design used visual connectivity as well
to the train service, time of day, and destination. as transparency between levels to develop a clear
circulation system that was intuitive to even the
Lack of visual connectivity and transparency as well most unfamiliar visitor. The dramatic glass and steel
as unclear circulation make all levels unfriendly for roof of the train room and the clerestory light of the
passengers and visitors. The Exit Concourse, Central ticket hall brought natural light into all the spaces,
Concourse and NJ Transit Concourse are not well- helping people to navigate the facility. This task was
connected and do not form a clear network, which made similar by the original Penn Station’s lower
would help guide passengers intuitively through the passenger count, allowing it to function with smaller
circulation system. concourse and waiting areas.

PennDesign Planning Studio 2013 51

 Train and Pedestrian Circulation Diagrams

h i s t o r i c

Generous capacity of the old track layout

Identity and clarity for arriving passengers

52 Reimagining Penn Station

 c o n t e m p o r a r y
Additional vertical circulation, but no increase in the number of tracks

Additional circulation and waiting areas for commuters is functional, but overcrowded

PennDesign Planning Studio 2013 53

 h i s t o r i c

Conventient transfers for arriving passengers

Grand entrances for departing passengers

54 Reimagining Penn Station

 c o n t e m p o r a r y
All corridors are below grade and highly crowded

Awkward corner entrances; no public realm, no station identity, and limited retail options

PennDesign Planning Studio 2013 55

 h i s t o r i c

Through connections, clear distinction between departures and arrivals

c o n t e m p o r a r y

Separation by operators, ad hoc solutions, and absence of overarching vision

56 Reimagining Penn Station

 Program
Current Penn Station is on 4 levels, 3 of which are square feet in area. It has 2 major north-south
below grade. The bulk of the building program is concourses, along with a narrow central corridor
across 2 levels. that terminates in the middle. These connect to the
33rd Street connector, providing access to subways
Level A is the concourse level. It was the exit located on 7th and 8th Avenues. Apart from public
concourse level in the old Penn Station. It currently circulation, back end offices, mechanical and
functions as the main circulation level and is 350,260 support services fill the rest of the level.

Level B | 336,350 SF Level A | 350,260 SF Level B + A | 686,610 SF

Charting the
programming break
down for Level B (Main
Waiting Hall) and Level A
(Concourse).

Existing Space Programming and Allocation

Track & Platform Level

LIRR

Source: HOK / Parsons Brinckerhoff, 2007

58 Reimagining Penn Station

 Level B was the original main waiting hall level and services, there will be demand for more space to
still has the Amtrak waiting hall. Currently it is 336,350 accommodate their growth. If this demand has to
square feet in floor area. Central circulation space be met within the existing building footprint, it will
is surrounded by retail along with other support further detract from the passenger experience.
services and offices.
As ridership has grown over the years and more
Level C is the street level, but Penn Station is almost people and trains pass through Penn Station, the
non-existent here; 2 Penn Plaza and Madison building program has steadily grown as well. An
Square Garden dominate the streetscape. Small, increase in back end offices, mechanical and service
inconspicuous entrances at the corners take people areas have been accommodated within the existing
from already crowded sidewalks directly into Penn building footprint. This has led to an increase in
Station at Level B without a grand station experience. congestion and resulted in a mix of uses that are not
necessarily compatible with each other. Separate
Public circulation is 30% of Level A and B combined. locations for Amtrak, NJT and LIRR passenger
However, the bulk of space is taken up by mechanical facilitates and services have lead to inefficiencies
and support services and Amtrak facilities. They in circulation as well as underutilization of building
both account for 24% each, while NJT and LIRR only space.
account for 5% each. As ridership grows on these

Existing Level A (Street

Level) programming plan.

Source: HOK / Parsons Brinckerhoff, 2007

60 Reimagining Penn Station

Structure and Experience

As currently constructed, Penn Station is essentially space, preventing the introduction of skylights to
two separate structures: Madison Square Garden and enhance the user experience.
2 Penn Plaza atop a subterranean Penn Station. This
presents a significant challenge to the expansion of Structures in the station area between 33rd and 31st
Penn Station. In particular, the columns supporting Streets and Seventh and Eight Avenues currently
the Garden are a major hindrance to upgrading or depend on 1162 columns. An efficient structure
expanding tracks and platforms. Overbuilt structures should need only a quarter of that number.
also hinder expansion of concourse areas and ceiling
heights as well as the introduction of natural light. Mechanical systems are scattered throughout the
building, with ad hoc additions being added into
Columns supporting the subways under 7th and 8th with each piecemeal renovation. These outmoded
Avenues present a further challenge, complicating and inefficient building systems present a formidable
pedestrian circulation. These columns hinder the challenge to any vision to establish a grand gateway
expansion of concourse areas and clearance of and world-class user experience at Penn Station.

Images of the current

structural composition of
Penn Station.

Sources: J. Appelar; M. Moran

PennDesign Planning Studio 2013 61

P R E S E R V AT I O N HISTORIC STATION ANALYSIS

C harles McKim’s design of Penn Station was magnificent, and its

loss is still felt by many New Yorkers and architecture enthusiasts
everywhere. There is much to be learned from the original design, but
it is difficult to preserve something that has been lost. Penn Station
was a building of its time; to reconstruct it now would be anachronistic
and inappropriate. Rather, we can learn from the past and apply these
lessons to the design of a new station.

One of the major techniques employed by McKim McKim used light, materials, style, and volume
is the processional quality of the spaces. Each area to evoke different feelings in each space. These
clearly indicates its function and leads into the next components can help to form the basis of the
space. The design separates the traveller from other vocabulary for the new station in a way that respects
movement paths such as baggage handling and the original but is still oriented toward the future.
maintenance and allows them to move through the Using these facets to analyze each space, we used
station unimpeded. historic plans, sections, photographs, and written
source material to understand not only how the
In order to get a better sense of how McKim defined elements applied to each space, but how they aided
these rooms, we conducted an analysis of the what did and did not work.*
spaces in the original station. We identified four
distinct spaces that each possess unique qualities Based on this assessment, we extracted the most
that served the specific purposes of each node of fundamental aspects of the historic station that
the historic station. served as the crux of its character. These have been
restated as architectural design princples that allow
These rooms (seen on the right) are identified as: future design to respect and recall the historical
(1) the concourse, where passengers accessed the identity of Penn Station.
The floor plan and section tracks; (2) the main waiting hall, which served as the
located on the opposite grand Neo-Classical interior space; (3) the vestibule,
page display McKim’s
historic station design, and which served as a transitional space between the
the distinct articulation of transit and shopping spaces of the station; and (4)
space.
the arcade - the station’s true entrance from 7th
Avenue - an indoor avenue of shops.

* Full analysis located in Appendix

62 Reimagining Penn Station

STATION DESIGN ENVISIONING A NEW PENN STATION

D E S I G N
OBJECTIVES TRANSPORTATION
There are three objectives related to transportation. First, the station creates a functional train
station that is built to modern safety and security standards. Second, it is designed to have
sufficient capacity and interoperability between various train services. Third, the design transforms
Penn Station into a hub that integrates regional transit into one transportation system. It connects
seamlessly multiple transit modes including long distance / high-speed rail, metropolitan rail,
commuter trains, subways, buses, taxis, bikes and pedestrians.

URBAN DESIGN
The Penn Station Master Plan transforms the existing Penn Station into an active urban center in
Midtown West Manhattan. It is designed as part of a larger master plan that encourages mixed-use,
high-rise, high-density development around the station as well as overbuild at strategic locations.
Significant public space will front the new Penn Station, creating a pedestrian realm that will serve
as an area-wide amenity.

ARCHITECTURE
The design for new Penn station not only resolves issues related to transportation but creates a
grand gateway which will be an ennobling and exhilarating experience to any user of the station.
The design brings in the public realm to create grand spaces inside the station through the
provision of retail and other amenities. This plan strives to recreate the spirit of the original Penn
Station as a grand indoor public room, but expresses it in contemporary language.

66 Reimagining Penn Station

T R A C K +
PLATFORM capacity improvements
The layout of platforms and tracks of a train station Among the 8 platforms, the three platforms in the
impacts the available capacity, the boarding north zone are 1050 feet long. They will serve the
experience of passengers, and user safety in case of 12-car commuter trains of Long Island Rail Road.
emergency. The existing platforms at Penn Station The two platforms in the middle are the longest
have an average width of 20 feet and some parts of platforms with 1350 feet, which could be used for
the platforms are as narrow as 14 feet. The narrow high-speed rail service. The other 2 platforms are
width of platforms has caused serious problems in 1200 feet; they are planned for Amtrak intercity
terms of passenger circulation and loading time. service. The southernmost platform in Penn Station
maybe used for Empire Service.
The envisioned track and platform plan resolves
issues related to safety and security of passengers The first option is an ideal scenario where all platforms
and adds much needed capacity to Penn Station. are widened to 30’ and phased in such a manner
The platforms are widened to 30’ and new egresses that the station can remain operational throughout.
with escalators and elevators are introduced to The second option maintains the existing platforms
address challenges of safety and security. Four new 9, 10, and 11 as they are. These are mostly used by
platforms and eight new tracks - for a total of 8 Long Island Rail Road, utilizing the East Side tunnel
platforms and 16 tracks - are added under Block 780 under 33rd Street. However, all platforms south of
as part of the Gateway project. platform 9 are widened to 30’.

The station operates mostly in three zones related Option 2 has the potential to be upgraded later, with
to train services as well as tracks and platforms that platforms 9, 10, and 11 widened to conform with
are served by East Side tunnels under 32nd and 33rd contemporary standards. Hence, Option 2 can be
Streets. Two options are designed as part of the new viewed as a final build-out, with Option 1 acting as
track and platform plan. a phasing stage.

Plan for the existing track

and platform level.

Opposite Page: includes

plans for the two proposed
strategies for redesigning
the transportation
infrastructure of Penn
Station.
EXISTING

70 Reimagining Penn Station

1
OPTION
2
OPTION

PennDesign Planning Studio 2013 71

C ONCOURSE
L E V E L A circulation & connectivity
Level A has been designed as a concourse level. on 30th and 31st. These connectors act as wide
Four North–South concourses are designed corridors with commuter-targeted (“grab and go”)
based on current locations of the Exit Concourse, retail. These connectors connect existing subway
Central Corridor, NJ Transit Concourse, and West stops at 7th and 8th Avenue on 34th Street and new
End Concourse in the Farley Building. These subway stops at 7th and 8th Avenues on 30th Street.
concourses connect to East-West connectors under New subway stops are designed to add capacity
30th, 31st, and 33rd Streets. Four concourses and and relieve already congested subway stops at 34th
three connectors form a clear grid that enhances Street The new subway stops also help to reduce
connectivity and access and makes the circulation walk times for commuters from new platforms
system intuitive to passengers. beneath Block 780.

There is a clear circulation system that takes The central concourse at level A also has a waiting
passengers from Platform level to Level A and above. area for long distance travelers, which is directly
North-South Concourses do not have any other use connected to the Main Hall on Level B. The east
than public circulation and are kept clear of any side and west side concourses will become primary
visual clutter. These concourses connect to the circulation routes for commuters connecting to
existing 33rd Street connector and new connectors 33rd St. and 31st St. connectors. The egress stairs

Axon (left) and plan

(above) for a new
Concourse Level.

72 Reimagining Penn Station

and escalators are designed so that northern and and future train operators.
southern zone platforms, which would be primarily
Long Island Rail Road and NJ Transit operation zone West and East concourses are extended through
respectively, will be directed towards streets and the basement of One Penn Plaza and open into
concourses to facilitate quicker movement towards 34th Street at mid-block location between 7th and
subway stops under 7th and 8th Avenue. 8th Avenue. This will help in seamlessly connecting
trains, subways and 34th St. Select Bus Service (SBS).
The egress stairs and escalators for the central zone,
which would be primarily long distance and high- There are many cutouts at level A as well as Level
speed rail, are directed towards central concourse B that help create a sense of high space and bring
and main hall on Level B. However, it is possible to natural light into the station via skylights on the glass
change direction at concourses on Level A, making and steel roof. This will also create visual connectivity,
the station inter-operable between various current helping circulation to be more intuitive.

PennDesign Planning Studio 2013 73

M AIN HALL
L E V E L B user experience & access
Level B is the waiting level. This would be a The main hall will be flanked by high-end retail and
memorable space that would become the identity restaurants as well as long distance and high-speed
of New Penn Station. It will be high with a glass and rail passenger facilities. The main hall will have more
steel roof that brings natural light into the interior retail than any other level, allowing for continuous
of the station. It will also have visual connectivity to breadth of retail.
Level A as well as track and platform level, creating
a direct visual connection between visitors and The waiting level will also include ticketing and
passengers at the platform level. information spaces and waiting areas. Additionally,
an existing 33rd Street concourse connecting 7th
The importance of a direct visual connection Avenue and Herald Square, which was previously
between Level B and other levels of the station closed off, will be reopened to create more space
cannot be understated. Allowing visitors to view in the interior of the station and allow for greater
the platform level from upper levels will allow underground mobility. Furthermore, a similar
passengers to wait for their trains without standing concourse will be built below 31st Street, extending
at the platform level. This increases the efficiency to Herald Square. Increasing connectivity to Herald
of the station by removing standing passengers Square will provide those that want to avoid the
from the platform (as well as space in critical areas), stress of walking through the midtown area a
improving circulation, and decreasing dwell times. shortcut. This will also signify a marked improvement

Axon (left) and plan

(above) for a new Main
Hall Level.

74 Reimagining Penn Station

in pedestrian flows from the station to surrounding The experience of descending into the main hall
transportation hubs and connections. through a carefully designed set of wide stairs
is remarkably different from the experience of
Finally, there will be grand wide stairs and escalators descending into a subway station with very little
connecting the Main Hall to Street Level (Level space to accommodate multiple passengers. The
C). These stairs will connect public plazas and purpose of this design is to further the feeling of a
entrances at 7th and 8th Avenue as well as mid- welcoming grand entrance that extends itself from
block entrances on 31st and 33rd Street. This type of the street level down into the waiting level in a
entrance is reflective of the historical Penn Station, continuous and welcoming procession that shows
where passengers entered the entrance through a visitors a way to enter into the heart of the city.
set of wide stairs and immediately descended to a
main hall with a grand open space.

PennDesign Planning Studio 2013 75

S T R E E T
L E V E L C identity & public realm
The public realm design for a new Penn Station it on 7th and 8th Avenues. A mid-block public
envisions a dramatic transformation from existing passage is designed from 30th to 31st Street to
conditions. This plan proposes a grand new head create an alternate pedestrian circulation path that
house and train shed that will become the identity opens into a midblock entrance to the main Penn
for new Penn Station, serving as a hub for urban Station building.
regeneration in Midtown West Manhattan. The plan
proposes large public pedestrian plazas to establish The plaza on 8th Avenue will be more civic in scale.
a public realm that will effectively handle large The grand stairs of the Farley Post Office will be used
pedestrian flows in and out of Penn Station. as a public space that flows across 8th Avenue into
a new at-grade plaza that connects public entrances
These plazas are designed along 7th and 8th through a grand canopy into Penn Station. 8th
Avenues between 30th and 33rd Streets. The Penn Avenue between 30th and 33rd Streets will be
South facility will also has pedestrian plazas fronting redesigned with cobblestone pavement and other

Axon (left) and plan

(above) for Penn Station at
Street Level.

76 Reimagining Penn Station

traffic calming measures to prioritize pedestrians. The new skyscraper would act as a modern head
The plazas will also introduce soft landscaping house, giving definitive identity for Penn Station in
and green infrastructure elements, along with the New York skyline. A similar skyscraper is planned
programmed hardscape areas with cafes and on top of the Farley West Extension, maintaining the
restaurants. There will be a direct connection to High historic building and façade at street level.
Line Park from the 8th Avenue Plaza by extending
the High Line along 30th Street. An additional grand 31st and 33rd Streets will be used primarily as
canopy and public entrances on 7th Avenue will taxiways, with the mid-block entrances between 7th
lead into retail space below the new skyscraper at and 8th Avenue clearly marked as taxi priority zones.
the current location of 2 Penn Plaza.

PennDesign Planning Studio 2013 77

exterior | 31st street & 8th avenue

78 Reimagining Penn Station

interior | main gateway hall

80 Reimagining Penn Station

 New Station Drawings

Renderings

EXTERIOR | 31st Street & 8th Avenue

The exterior vantage shows the new station’s interaction with the public realm as it meets 31st Street and 8th
Avenue. It is designed to facilitate both the everyday traffic and pedestrian use patterns, as well as support
special events and festivals. The purpose is to emphasize the fact that our design is not solely for the station, but
also for the entirety of Midtown West. The new plaza is modern and yet historic; heritage is honored in retaining
the visual correlation between the station and the Farley Building as McKim intended. The grand colonnade
and stairs of historic Farley building thus flow
into cobblestone 8th Avenue between 31st
and 33rd Street, incorporating traffic calming
techniques to prioritize pedestrian experience
and safety. This space flows into a pedestrian
plaza fronting the entrance of New Penn Station.
New soft landscape as well as programmed
hardscape fronts the station. The grand canopy
will flows into the foyer and the grand interior of
new Penn Station Main Gateway Hall.

INTERIOR | Main Gateway Hall

The interior rendering depicts the perspective from inside the new Main Gateway Hall, looking to the west.
Magnificent neoclassical colonnade of Farley Building can be seen from the inside the Station. People standing
at the entrance and gallery space will experience the monumentalism inherent in the new design. The Main
Gateway Hall itself is populated with new retail,
amenities, information, and historic tokens;
and unlike its Gilded Age predecessor, the new
area includes seating to provide users with a
place to actually wait. Natural light and visual
understanding are conducted downward from
the new roof and open wells, lighting and
enlivening the reclaimed space. It is through this
glass roof that the new Penn Station announces
itself as a true “gateway,” establishing not only
the connection for passengers out into the city
but for the City of New York to reach into the
station.

82 Reimagining Penn Station

Sections

LONGITUDINAL Main Gateway Hall

Longitudinal sections are used show the relationship The longitudinal section through the Main Gateway
between the various levels and how they connect to Hall demonstrates how the public realm flows into
the streets. They also illustrate how the circulation the station. The pedestrian plazas on 7th Ave. and
system navigates various levels punctuated by 8th Ave. flow into the entrance foyers and through
grand interior spaces. the grand stairs into the Main Hall on Level B.

Section depicting the train

shed’s nexus - the Main
Hall.

PennDesign Planning Studio 2013 83

 Circulation Patterns the west extension of the Farley Building. These
skyscrapers would become the identity of Penn
The remaining two longitudinal sections show Station in New York skyline.
the two movement patterns through the station.
Circulation along the long distance platforms is CROSS SECTIONS
directed towards the main hall where there will
be high-end retail and long distance passenger Cross sections (located on the following two pages)
facilities. The Commuter section is designed such show the relationship of the roof structure and
that the circulation takes commuters to the subway the interior spaces. The 3-vaulted wave roof is a
stops and street level on 7th and 8th Avenues. contemporary interpretation of traditional Victorian
barrel vaulted train shed. It expresses the smaller
These sections also show the possibility of overbuild spaces at the entrance as well as the various platform
in the location of current 2 Penn Plaza and over zones that the station operates in.

Section depicting the

circulation of high-speed
commuter train user
movement throughout
the station.

84 Reimagining Penn Station

Concourse Main Gateway Hall

The concourse section also illustrates the retail The cross section through main hall has a large
strategy. Retail is designed on three levels: shopping span single vaulted roof. This expresses the large
on level A is oriented towards 33rd and 31st Street space that it houses - the Main Hall. It also shows the
connectors and is geared towards commuters; retail midblock entrances on 31st and 33rd Streets, and
on Level B fronts the main hall and is high-end retail; how they connect through the grand stairs to the
on the street level, shops front the sidewalks of 33rd Main Gateway Hall on Level B.
and 31st Streets.

Section depicting the

circulation of high-speed
rail and long distance
ridership user movement
throughout the station.

PennDesign Planning Studio 2013 85

Cross section of the new
station, cutting through at
the Concourse section.

86 Reimagining Penn Station

 Cross section of the new
station, cutting through at
the Main Hall.

PennDesign Planning Studio 2013 87

 Irradiance Diagrams* The conclusion that can be drawn from these
studies is that with this design, a fair amount of light
The following are irradiance studies that show the does enter the station, including the lower Level
amount of natural light that enters the different A and Platform levels. Although artificial lighting is
levels of the station. The purpose of this set of still necessary, a fair amount of light does enter the
diagrams is to analyze whether the voids that we station, including the platform level, during the
designed actually serve to bring natural light into spring, summer and autumn seasons.
the interior of the station.

Sketches depicting the

filtration of natural light
down from the roof
through each of the levels
of the new station in early
spring.

Level C - Street Level Level B - Main Gateway Level

Level A - Concourse Level Track & Platform Level

* Full irradiance included in Appendix

Conclusion

The preceding design for a new Penn Station City. Finally, it is designed as part of larger urban
addresses three major issues. First, it creates a design master plan with added public space that
modern train station with contemporary safety includes pedestrian realm around the station.
and security standards. It is designed for adequate This design will help transform Penn Station not
capacity to handle multiple train operators. The only into a seamlessly connected intermodal
design also creates a grand gateway to New York transportation hub but also an active urban center.

88 Reimagining Penn Station

Phasing

P 1 G AT E W AY & FA R L E Y
This phase will essentially prepare the area for Phase II. Included is the completion
of the Farley Post Office renovation to be temporarily used as a primary train hall, the building
of the Gateway Tunnel project to a new station underneath block 780, to be called Penn South,
and the extension of new passageways to circulate traffic around the current Penn Station site.
Meanwhile, necessary relocation of Madison Square Garden will occur, with movement of offices
and demolition of Two Penn Center for rebuild.

P 2 PENN S TAT I O N R E B U I L D
The most significant phase of the project will span four stages. During this process, sets
of four tracks and two platforms at Penn Station will be closed and rebuilt from basement to street
level. This will include the widening of sub-basements and construction of new columns and
floors overhead. Resulting from this phase will be the completion of the new Penn Station Site
with wider platforms and a new head house. At this point, two new tracks will be built to connect
the Empire Connector to the northern tracks near 33rd Street.

P 3 EAST RIVER TUNNELS

Following the opening of the new Penn Station, the stub end tracks at the Penn South
Station will be continued eastward under the Hudson River, providing through service options for
these tracks.

Mapping the phases on

the site of future Penn
Station development.

PennDesign Planning Studio 2013 89

RESILIENCE SECURITY AND SUSTAINABILITY IN A 21ST CENTURY WORLD

A s the financial and cultural capital of the United States, New York will
remain a target of domestic and international threats throughout the
21st century. The city also lies precariously on a rising Atlantic seaboard;
as the planet warms, New York cannot move forward without mitigating
the risks of cataclysmic climate change. Each of these threats will be
considered in the construction of a new Penn Station.

Security Fortunately, Penn Station has yet to have a major

disaster. However, in recent years, Penn Station has
Security concerns at Penn Station are well witnessed several minor fires, primarily at the track
documented. In the event of an emergency, an and platform level, with at least six such incidents
orderly evacuation of the facility would be slowed reported between 1991 and 2012.
by ingress and egress points that are not sufficient
to accommodate crowds. Additionally, evacuation These incidents suggest Penn Station is vulnerable to
of passengers from trains on the track platform level more fires in the future. The timing of an emergency
would be constrained by narrow platforms and should also be considered; the ability to evacuate
inadequate vertical circulation points. Insufficient Penn Station in the event of such an incident,
emergency evacuation points would also hamper particularly at the track and platform level, would be
the ability of first-responders to reach disaster points severely compromised if the incident were to occur
and assist wounded inside the station. during peak hours.

92 Reimagining Penn Station

DISTRICT DESIGN REAL ESTATE, PUBLIC REALM, AND URBAN DEVELOPMENT

R eimagining a new Penn Station goes beyond simply building a

new train station. To achieve all of its potential, it will be necessary
to transform the outmoded station into a transit hub for the entire
megapolitan and Northeast transportation network. The process will
also build on the momentum created by a new station to transform the
surrounding district of New York City, making the new Penn Station and
the surrounding area a gateway to the city and the region.

It is crucial that a cohesive vision and prudent policies real estate value to the west side of Manhattan and
are aligned before this transition can be made. The will match with other high profile (re)development
City, the State of New York, public stakeholders, and projects planned or in the works. A coordinated
private enterprises need to work together to identify development strategy will focus on reinvesting in
city building opportunities that promote mixed-use, the new Empire Center to lay the foundation for
walkable, and transit prioritized development to future private investment and development in the
create a new “Empire Center” around Penn Station. surrounding neighborhoods.

Currently, the area immediately adjacent to Penn The reimagining of Midtown West Manhattan
Station has considerably lower property values as an innovation district, comprised of four
compared to those properties within the same neighborhoods that are linked together through
proximity to Grand Central Terminal, another the Penn Station-Empire Center, will build on the
important, but less intensely used, transit hub in area’s existing strengths to catalyze sustainable
New York City. As occurred in the area around Grand development for more livable neighborhoods and a
Central Terminal after its renovation, it is expected globally competitive innovation-based economy for
that redeveloping Penn Station will add considerable the entire city and megapolitan region.

96 Reimagining Penn Station

The Empire Center well situated for start-ups, tech businesses, and
supportive service-based industries that can one
The district around a new and expanded Penn day move in closer to Penn Station upon company
Station can be reimagined as the Empire Center, a growth. In addition, the redevelopment of the
new focal point for New York’s future growth and area into the Empire Center will have new public
development. A redeveloped Penn Station will open space, as well as residential, retail, and hotel
catalyze development throughout New York City opportunities. The goal of these proposals is not to
and the region, but its impact will be most closely cite specific businesses or cultural amenities, but to
felt in the seven blocks immediately surrounding the provide a blueprint for future development.
station, on an area larger than the Rockefeller Center.
Site Planning for Empire Center & Midtown West
By enhancing transit access to the station, improving
the pedestrian experience around the station, and In addition to rebuilding Penn Station as a new
extending the High Line into the area, this proposal gateway to the city and region, it is important to
will transform the existing Penn Station District from envision and develop plans to improve the public
an under-utilized space comprised of aging office realm within Midtown West Manhattan. The
towers, low grade retail, and parking garages into a importance of active places are just as necessary
highly desirable magnet for development. outside in the surrounding neighborhood as in the
station itself.
These blocks will be redeveloped as a new Class
A business hub joined to Class B and C space, The layout of the proposed towers is a contemporary

Source: Google Earth

The areas immediately

surrounding Penn Station
will be reimagined into the
Empire Center.

PennDesign Planning Studio 2013 97

South, fully integrating transit access with new environment similar in character to the proposal for
Midtown West Master
development. Midtown East, the financial district, and Battery Park
Plan:
City. Rents are forecasted to double, commanding The Midtown West
Moreover, this complex of towers over Penn South higher prices on par with Times Square and Grand Master Plan aligns the
new development
and the western annex of the Farley Building could Central Terminal. of the Empire Center
also be home to an “innovation hub,” a forum of with the transportation
connections of New York
ideas and a place for cross-disciplinary collaboration A second element of the site plan is the inclusion City.
for the burgeoning technology industry. Further, this of approximately 180,000 square feet of public
hub would serve as the epicenter of a Midtown West open-space as plazas or prioritized pedestrian areas
Innovation District. Finally, the layout and program that will open up the district not only for aesthetic
of the Empire Center will exponentially increase retail purposes, but also will increase pedestrian capacity
(508,000 SF), office (10,400,000 SF), hotel (170,000 and comfort. The extended sidewalks on the
SF), and residential (550,000 SF) square footage to north and east end of the Penn Station will also
capitalize on the critical mass of activity that the new accommodate increased foot traffic to enhance the
Penn Station will generate. pedestrian environment and the retail experience.

There are four proposed building typologies that will A third key component of this plan is to extend the
allow for new commercial and residential-oriented High Line eastward, avoiding the residential block
mixed uses. All building typologies have ground on 30th Street and terminating at the Southwest
floor retail; however there are various combinations Penn Station Plaza. Extending the High Line in this
of uses to create a vibrant district that is flexible to manner provides a direct pedestrian connection
satisfy market demands. The Empire Center will be between the new Penn Station and Midtown West.
a premier mixed-use destination with Class A offices An added benefit to having the High Line turn north
and retail, as well as premium hotels creating an on 9th Avenue will be the corner vistas, which will

PennDesign Planning Studio 2013 99

Existing Perspective | 30th Street and 9th Avenue
The High Line is a symbol
of urban regeneration and
has served as a catalyst for
reviving Manhattan’s West
Side.

Proposed Perspective | 30th Street and 9th Avenue

The High Line is a critical piece of public realm some parking will be retained below the viaducts,
infrastructure that brings an element of nature much of the space will house boutique and chain
and green landscapes into an area lacking in retail shops as well as portions of the Empire Center’s
tree cover. The wide boulevards along 30th Innovation Center. Larger sidewalks will create a
Street and the underutilized parcels of real estate friendly, plaza-like feel on the ground floor, and
immediately north of the street make this area complete a pedestrianized connection between
a prime location for the High Line extension. the Empire Center and the High Line.

Currently, the intersection at 30th Street and 9th Existing issues on 30th Street include wide cartways
Avenue serves as parking for large coach buses. and narrow sidewalks, and a parking lot at the
The extension of the High Line will call for new intersection of 9th Avenue; these impose a gap
construction of the elevated viaducts. Although in potentially pleasurable pedestrian experience.

PennDesign Planning Studio 2013 103

Existing Perspective | 31st Street and 8th Avenue
Seamlessly integrating
the High Line into a
pedestrian plaza at 31st
Street and 8th Avenue
creates a new node of
activity in the Empire
Center.

Proposed Perspective | 31st Street and 8th Avenue

Extending the High Line into the Empire Center The High Line extension will cover about half
will help close this gap, furthering economic of the sidewalk and a parking lane, limiting the
development and encourage more foot traffic to the impact on existing traffic. The enlarged open
proposed developments. The High Line extension spaces on both sides of the street and the High
will terminate at a public plaza at the southwest Line will transform this area into an attractive
corner of 31st Street and 8th Avenue, directly across locus of activity, drawing competitive retail.
from the Farley Post Office. This site will also be the
location of a new tower development, replacing By removing two cartways, extending the sidewalks,
its current use as a parking lot and underutilized and including a protected bike lane, a new
retail suite. Dramatic stairs will descend into the active transportation corridor is created that will
plaza diagonally from the new Penn Station. complement new businesses in the Empire Center.

PennDesign Planning Studio 2013 105

Existing Perspective | 8th Avenue
Prioritizing the pedestrian
along 8th Avenue by
extending the sidewalks
and texturizing the
pavement will help bridge
the connection between
Penn Station and the
Farley Post Office building.

Proposed Perspective | 8th Avenue

Today, a busy six-lane thoroughfare - 8th Avenue - the width of the sidewalks three feet on both sides
sits between Madison Square Garden and the Farley of the street, increasing the setback at Penn Station,
Post Office building. However, the renovation of and replacing the concrete moat in front of the
both Farley and Penn Stationand the redevelopment Farley Post Office with an open plaza that welcomes
will require improved pedestrian connections across people into the building. Additionally, cobblestones
8th Avenue between these two halves of the station. will texturize the pavement on the cartways to
act as a minimally invasive traffic calming device,
To achieve this goal, a new open public plaza, still open signaling to drivers to be cautious of pedestrians.
to automobile traffic, will be created by extending

PennDesign Planning Studio 2013 107

Existing Perspective | 33rd Street and 7th Avenue
Widened sidewalks and
curb bump outs adjacent
to a new retail center will
improve the pedestrian
experience at 33rd Street
and 7th Avenue.

Proposed Perspective | 33rd Street and 7th Avenue

34th Street and Penn Station receive some of the will help to mitigate the risk of accidents
highest levels of foot traffic in New York City. The faced by pedestrians on these streets.
34th Street corridor and the intersection at 33rd
Street and 7th Avenue have such high pedestrian Additionally, a new tower, plaza, and retail
loads that people often must step into the street opportunities at the intersection of 33rd Street
when the sidewalk becomes too crowded. and 7th Avenue will further increase pedestrian
comfort and enhance the public realm.
Extending the sidewalk width while reducing
the width of the loading and travel lanes

PennDesign Planning Studio 2013 109

Existing Perspective | 34th Street
An efficient and safe
Select Bus Service System
will reduce the on street
congestion near Penn
Station.

Proposed Perspective | 34th Street

34th Street will continue to act as a major corridor Furthermore, traffic calming bump-outs can be used
connecting Penn Station to public transportation. as SBS loading stations, which will further reduce the
The new Select Bus Service (SBS) on 34th Street risk of accidents.
has already been implemented, alleviating traffic
congestion in the area. Transforming one traffic lane The 34th SBS line will be complimented by an Empire
into a shared bus and SBS lane will help efficiently Center SBS loop that connects all neighborhoods of
move more people across the city. Midtown West.

PennDesign Planning Studio 2013 111

 The Midtown West Innovation District

What is the Midtown West Innovation District? The Empire Center: Innovation District’s Nexus

The transformed Penn Station and surrounding Located immediately adjacent to the new
Empire Center development will become the hub Penn Station, the Empire Center’s extensive
of a proposed Midtown West Manhattan Innovation redevelopment, including the sixteen new towers,
District. The Innovation District will integrate the ten pedestrian plazas, and six new greenways will
tech industry in Midtown South and Chelsea, the act as the bridge between the four surrounding
creative and lodging firms in the Garment Center, neighborhoods. The Center will create the essential
and the media and entertainment companies in network link between the region and the Innovation
Times Square. The ability for various industries to District via seamless interchanges between Penn
reach across disciplines will allow a confluence of Station and Midtown West.
new ideas and talents spurring innovations in all
participating sectors. Located on the western half of the Farley Post
Office building, the physical representation of the
The Innovation District will be enhanced through Innovation District is the Innovation Center, a 1.1
policies that nurture startup firms and guide capital million square foot area that will serve as Midtown
investments, acting as an accelerator and incubator West’s entrepreneurial hub. It will contain applied
for entrepreneurial businesses in all of those sectors. research facilities, and it will create opportunities to
exchange and showcase ideas, provide educational
A Midtown West Innovation District will build upon courses and trainings, hold workshops and demo
existing neighborhood strengths and balance the events, as well as offer co-working spaces for startups.
energy and activity across the district in order to It aims to foster an entrepreneurial community and
advance progressive, idea-intense businesses to forge new partnerships through collaboration,
compete in and contribute to a globalized economy. networking, and support. The center will benefit
The Innovation District is the result of enhanced from substantial transportation infrastructure
transportation and public realm investments - a improvements enhancing travel from across the
nascent area nurturing growing businesses to focus region, and indeed from across the whole Northeast
on inventive solutions that will have both region- megaregion.
wide and global benefits.
The Innovation District Neighborhoods
What are the boundaries of the Innovation district?
Each neighborhood adjacent to the Empire Center
The Innovation District is composed of the four presents distinct locational opportunities, resources,
neighborhoods that surround Penn Station and and advantages for establishing innovation
the Empire Center. The area is defined by an industries.
approximate 15-minute walk in all directions from
Penn Station. The northern boundary consists of 41st The Flatiron District already has more than 300
and 42nd Streets and includes the Port Authority Bus start-ups and a host of venture capital firms making
Terminal and Bryant Park. The eastern boundary runs it the epicenter of New York’s high-tech corridor.
along 5th Avenue and includes Madison Square According to the Flatiron/23rd Street Partnership
Park. The southern boundary is defined by 23rd Business Improvement District, 11 of the 30 most
Street and the western boundary is the Hudson river. valuable startups in the NYC are located in or near
The Innovation District is roughly represented by Zip the Flatiron District at a total estimated value of $3
codes 10001 and 10018 and is informally known as billion. This BID highlights and promotes the prime
Midtown West in the real estate marketplace. real estate that is favorable to the needs of small
startup firms. The relatively small building footprints,
open floor plans, high ceilings, and affordable rents
of the office buildings centered on Fifth Avenue

112 Reimagining Penn Station

 and Broadway provide workspaces that are more Company to provide a free, public Wi-Fi network,
conducive to thriving creative industries. Nearly one- which helps to bring in startup companies and
quarter of the 200 Class B office buildings are leased boosts the tech sector in the area.
to technology, marketing, and creative design firms.
In addition to shorter and more flexible lease terms, Additionally, the presence of more established tech
asking rents range from $22 to $57 per square foot, companies like Google and InterActiveCorp (IAC) has
and are comparatively lower than that of central contributed to the growth of the tech sector in West
Midtown. Chelsea. Indeed, IAC, which owns 60 e-commerce
brands and other digital businesses, has opened
Nascent businesses will likely intensify the digital its new headquarters on 11th Avenue that not only
media and e-commerce clusters formed in the houses its employees, but also provides a venue to
Flatiron District. Availability of business incubators encourage collaboration and networking. Google
and venture capital firms, proximity to other acquired 111 8th Avenue in 2010, a 15-story, 3-million
innovation hubs, and access to other resources will square foot historic building with 14.5-foot ceiling
continue to position Flatiron as the stronghold of heights, to become its New York City headquarters
New York’s tech hot spot. Companies like Tumblr and accommodate its east coast expansion. Its full-
and Gilt Groupe are based in the Flatiron District block sized floor plates, public transport accessibility,
and have expanded amidst the burgeoning tech proximity to advertising firms, and connectivity to
industry. In addition, eBay’s technology center, its business users make this building well suited to
which includes workspace for startups, is planned Google’s needs. This and other companies recognize
for development. the need to reach out and deepen a growing tech
talent pool in New York from West Chelsea.
The strength of the Flatiron District lies in part on
the presence of specialized facilities which provide The Garment District has expended substantial
support for startup formation. One such example efforts to preserve its legacy as the center of
is General Assembly, an incubator that offers co- the fashion and garment industry. The Special
working space and educational programs for Garment Center District has sought to create a vital
design and technology entrepreneurs. It fosters entrepreneurial research and development hub for
collaboration and exchange of ideas and nurtures creative production and fashion innovation that
entrepreneurial activity through the provision of builds upon a network of designers, factories, and
affordable workspace, facilities, and classes. Various suppliers. By 2011, fashion-related employment
corporate organizations like Skype and investment had seen steady growth, accounting for 48.9% of all
firms have sponsored the business incubator, but jobs within this neighborhood. It is expected that
the city’s involvement has been the most critical. traditional manufacturing employment will continue
New York City Economic Development Corp. to decline here, but at a slower rate compared to the
granted $200,000 for the programming as part of rest of Manhattan. The reduction in manufacturing
the city’s initiative to grow its tech industry. employment is making possible the growth in
non-fashion related businesses such as hotels and
The West Chelsea neighborhood provides food establishments, as well as creative industries,
attractions that incentivize startups and young including film, visual arts and photo studios.
employees to relocate in the neighborhood. Public
open spaces, such as the Hudson River Park, the The changing dynamics of the Garment District’s
High Line, Chelsea Piers and the Chelsea Market, economy is clearly reflected in the area’s diversified
have revitalized the area into a prime spot for dining commercial real estate activity. Drawn to public
and shopping. These amenities are also helping transit access, cheaper rents, and flexible office
the neighborhood grow into a popular residential spaces, it is estimated that over 100 digital and
neighborhood. The area is also largely synonymous tech-based startups have based themselves in this
with creative industries and lifestyles that have lured area. With approximately 88% of the Fashion Center
emerging firms. Other efforts include the partnership BID’s built space classified as office (62%) or loft
between Google and Chelsea Improvement (38%) building types, the Garment District is likely

114 Reimagining Penn Station

 The commercial superblock, built over the west side Manhattan. Additionally, a proposed SBS loop that
rail yard will incorporate “cost-effective space, optimal runs along 34th Street, 12th Avenue, 28th Street
for fostering collaboration,” while open spaces such and Park Avenue will work in conjunction with the
as the Hudson River Park, extension of the High Line, City’s 34th Street SBS and will link Penn Station to
and the Hudson Park & Boulevard should be a big the Hudson Yards, the High Line and the Garment
draw for young workers. It is expected that high- District. It will effectively connect to all parts of the
density commercial and residential development city, by linking to the R, N, Q, and W subway lines, the
with considerable open space and amenities will 4, 5, and 6 lines, as well as the line 7 extension. Finally,
likely shift energy and activity westward toward the it is proposed here that two new subway stations will
neighborhood. be added along 28th Street, at 7th and 8th Avenues.

A Highly Accessible Innovation District The new transportation improvements, and the
already high transportation accessibility allows the
The Midtown West Innovation District is already innovation district to cover 22 subway stations, 13
and will continue to be one of the most accessible SBS stops, and numerous bus stops, linking to 18
locations in all of New York City and of the whole subway lines and 2 SBS lines. Finally, a pedestrian
metropolitan area and Northeast Megaregion. It concourse along 33rd Street will seamlessly link
will be served by 17 different subway lines and Penn Station to all of the above ground public
with upgraded intercity and high speed rail services transit. The innovation district will become the
going through Penn Station. most accessible center in the region, boasting its
great legacy of transportation accessibility and the
The new #7 Line subway extension provides direct promising improvements.
access to the Yards and the District. The proposed
34th Street SBS line that runs the length of 34th
Street directly links the east and west sides of

Source: newyorkcityscott from Flickr on Dec 26, 2009

118 Reimagining Penn Station

With new rail investments,
over 12 million people will
have a 30-minute travel
time to the Innovation
District. Over 15 million
people will have a 60 min-
ute travel time, and over
25 million people will have
a two hour travel time to
the Innovation Center.

Key Location Advantages

Key Locational Advantages transformation into the Innovation Center include:

Two key factors will contribute to Midtown West • New and extensive improvements in
Manhattan’s transformation into an innovation transportation systems that increase
district - the improved accessibility of a new Penn accessibility
Station, and the locational advantages of Midtown
West. • An increase in total population, particularly
younger professionals who seek urban
Analysis of key locational advantages in Midtown lifestyles
West demonstrates that the area has reached an
important stage where a novel economic strategy • Existing and new clusters of emerging
is necessary; one that can sustain viable transit- industries that diversify economic activities
oriented development and elevate New York’s global
competitiveness. Even though Midtown West has • Soft sites that present potential for property
suffered from underinvestment and dilapidation, it development
will become the epicenter of an innovation economy
that enhances the growth of jobs and emerging • New synergies and partnerships between
industries, intensifies and diversifies communities, municipal, academic, and private firms to
and transforms the area into a memorable place. incubate innovation economies
This transformation is already underway with the
Transportation and Accessibility
extension of the #7 subway to 11th Avenue and the
initiation of construction of the first towers in the
Along with improved commuter transportation
Hudson Yards and Manhattan West Projects.
services at Penn Station, the proposed Metropolitan
Service and High Speed Rail will greatly enhance
The area’s key locational advantages that
the regional connectivity and attractiveness of the
will successfully complete Midtown West’s

122 Reimagining Penn Station

innovation district. York City. The incomes of residents in the area have
also increased at a faster rate. This represents an
Improved street level amenities around Penn opportunity to cater to the shifting demographic
Station, including a pedestrian concourse along trends through district development and the
33rd Street, will link Penn Station, the Empire District, associated programming.
and the Innovation District to nearly all forms of
public transit in New York City. Additionally, the SBS Existing Clusters of Emerging Industries
loop will effectively improve connectivity to other
parts of the city by linking the Innovation District An innovation economy would spawn a new
to the R, N, Q, and W lines, the 4, 5, and 6 line, and generation of start-up business ventures. From
the #7 subway extension. Finally, two new subway fashion and design to biotech and IT, knowledge-
stations along 28th Street, at 7th and 8th Avenues, intensive and idea-generating industries are thriving
will put 18 different subway stations within a ten- today, springing up in and around the Midtown.
minute walk from the Empire Center. The existing Currently, energy is mostly concentrated along
transportation infrastructure combined with the
Key Innovation District Demographics
proposed transportation plans make Midtown West
the most accessible area and gives residents the Midtown West Manhattan
most options for mobility. 2000 2010 % Change is undergoing significant
demographic changes in
New York City
its residential population,
Changing Demographics Total especially when compared
8,008,278 8,175,133 2.08%
Population to the rest of Manhattan
and all of New York City.
The area surrounding the new Penn Station is an
Age Group
area in ascendancy and transition as evidenced by 21 to 34 Years
1,957,852 2,035,030 3.94%

changing demographics. From 2000 to 2010, total

Median
population in zip codes 10001 and 10018 has shown Household $38,293 $50,038 30.67%
Income
a 22% increase. The 21 to 34 year old age group
accounts for 30% of the increase and almost 40% Manhattan Only

of the total population in 2010 falls within this age Total

1,537,195 1,585,873 3.17%
Population
bracket.

Age Group
Additionally, in 2000, the median household income 21 to 34 Years
451,826 482,792 6.85%

was $44,819 and grew to $76,323, a 70% change

Median
from the previous census. Despite growth in Household $50,229 $67,204 33.80%
Income
population and median income in the area, vacancy
rates also rose in the area. The homeowner vacancy Innovation District*

rate increased from 2.1% to 3.7%, as well as the rental Total

21,565 26,331 22.10 %
Population
vacancy rate from 3.6% to 19.4%.
Age Group
7,624 9,854 29.25 %
The data shows a clear trend that young professionals 21 to 34 Years

want to live and work in New York City; now, it is

Median
up to the city to adapt to these trends. A growing Household $44,819 $76,323 70.29 %
Income
population, under-utilized land, rising vacancy rates, * As represented by zip codes 10001 & 10018 Source: American FactFinder

and lower real estate values, indicate opportunities

to redevelop the blighted areas around Penn Station
into a vibrant center that meets the demands of a
new generation. Broadway, particularly in the Flat Iron District and
West Chelsea. Young entrepreneurs have found
The Innovation District is experiencing faster creative ways to contribute to this market, through
population and young population (aged 21-34) sharing workspaces, collaborating, and networking.
growth compared to Manhattan and all of New

PennDesign Planning Studio 2013 123

and generate nearly $4 billion of economic growth. shift to accommodate the new investments and new
firms as the area grows into a fully fledged Innovation
Together, these three projects are expected to District. w
generate more than $33 billion in overall economic
impact over next three decades, with over 48,000 This innovation district will be the incubator for
jobs, and roughly 1,000 spin-off companies. Such an emerging firms in the creative and technological
endeavor will attract the necessary workforce and industries that are at the forefront of the globalized
talent base in science, engineering, and technology economy.
to the City as well as put technological innovators in
the same space as motivated entrepreneurs.

These advantages create a significant opportunity

for Midtown West Manhattan Neighborhood to
become New York City’s Innovation District.

Conclusion

A global gateway is a monumental transportation

hub that welcomes travelers, as well as an
ennobling experience for people as they venture The intersection of 34th St
and 8th Ave represents a
from the train station into the city. Redeveloping potential redevelopment
and investing in the public area around the train opportunity around Penn
Station to improve the
station and transforming it into the Empire Center public realm and catalyze
will incentivize private development and welcome the Midtown West
Innovation District.
emerging industries into Midtown West Manhattan.

Furthermore, the patterns and trends of

development in Midtown West Manhattan will

PennDesign Planning Studio 2013 127

Source: RDG Engineering

128 PennDesign Planing Studio 2013

IMPLEMENTATION
Plans alone cannot deliver a new Penn Station to the
residents and businesses of the New York region.
To succeed, our proposal must identify the critical
component missing in previous plans for Penn
Station: a unitary champion, which we call “an honest
broker,” to avidly pursue a “Make It Happen” strategy
around Penn Station and lead others throughout the
process. We recommend this entity as a conduit for
administering and evaluating strategies for funding,
financing, and delivering a world class gateway
to New York City. With a champion backing Penn
Station’s future, our plans can become action steps.

Reimagining Penn Station 129

R E A L I T I E S FUNDING, FINANCING, AND PROJECT DELIVERY

F or the first time in more than half a century, the New York region is
expanding its transit infrastructure through targeted investments.
East Side Access, scheduled to be completed in 2019, is the largest
transportation project in the country and will give Long Island Railroad
customers a one-seat ride to Manhattan’s East Side, saving commuters up
to 40 minutes on their daily ride and temporarily alleviating congestion
at Penn Station.1

The Second Avenue Subway, a project nearly 100 of a new Penn Station and an ability to transcend
years in the making, will include a two-track line politics. Consultant John McNulty, who led efforts to
along Second Avenue from 125th Street to Lower rebuild and expand King’s Cross Station in London,
Manhattan, reducing overcrowding on the Lexington describes this entity as an “honest broker,” capable of
Avenue line. The #7 Subway is being extended west
2
managing trade-offs between relevant stakeholders.
to Hudson Yards, at the tip of Manhattan’s Far West Although a new Penn Station immediately benefits
Side. The construction of a new Penn Station is the entire Tri-State region, the project champion
essential to continuing this momentum. will likely be a seasoned veteran of New York State
politics; this respected entity will mobilize support
To accomplish that goal, this section will outline from the highest ranks of government and private
a “Make It Happen” strategy that addresses the industry.
primary hurdle in previous Penn Station plans: the
lack of a unifying champion. This champion could be This project champion must assemble the key
an individual or group with a dedication to the idea stakeholders. By bringing all parties to the table early,

130 PennDesign Planing Studio 2013

the “honest broker” can secure their buy-in, creating and agree on a baseline price to follow.
a smooth transition from vision to completion.
The final task for the project champion is to select
The British government, a project champion for the a project delivery entity. The project champion can
HS1 high speed rail in Southeast England, withheld present several options for an organization capable
funding for the project until all parties agreed on of delivering a project of this magnitude; when
a comprehensive vision; similar fortitude will be considering these options, the project champion
required by the project champion at Penn Station. should stress the importance of eminent domain
authority, financing capacity, and the ability to rise
The project delivery strategy will also require above political factions.
an integrated funding and financing plan. Our
approach involves a flexible mix of options, ensuring Key Stakeholders
that a new Penn Station is not solely contingent on
federal funding. These options include passenger This new delivery entity will need to seek buy-in
facility charges, regional levies and real estate from key stakeholders, including local and state
revenue from joint development around the station. governments, elected officials, public sector
Revenue streams from each of these sources can agencies, interest groups, and real estate developers.
be converted into up-front financing in the form of These partnerships will be critical to obtaining
federal, municipal, or private loans. financial, public, and political support because
coalitions are able to draw from a wider constituency
To determine the revenue required to build a new to advance the project’s goals. Stakeholders are likely
Penn Station, Amtrak’s Gateway Project will be to have differing concerns – such as safety concerns,
used as a baseline; its tunnels and tracks are vital to capacity expansion, or profitability – requiring
increasing capacity at the station. Additional items different outreach tactics for each group. Drawing
to be costed include new additional track and on the example of the stakeholder-driven Alameda
platform capacity, the station itself, and public realm Corridor project in Los Angeles, understanding
improvements.. The project champion will work the preferences of each key stakeholder will allow
with stakeholders to adjust prices where necessary advocates to tailor their approach.3

The studio has developed

a “Make It Happen”
strategy to overcome the
primary hurdle in previous
Penn Station plans: the
absence of a unifying
champion.

Reimagining Penn Station 131

Funding Scenarios New Jersey. Thus, assuming Penn Station were to
receive a maximum amount of potential government
Re-imagining Penn Station will be a large and funding (50% or $9.5 billion), it would require about
complex project requiring significant government 13.68% of funding to be raised through district, city,
support. However, during a time of severe fiscal or regional taxes.
austerity, different scenarios must be included
to model the potential that Penn Station will not Given that federal and state governments are
receive as much support as past projects. Each currently in a period of fiscal austerity, less
of the scenarios assumes a passenger facilities government aid was also modeled. Assuming
surcharge that generates $5.1 billion and a ground the government provides 25% funding, or $5.75
lease that generates $1.8 billion, more than enough billion, special purpose taxes will have to account
to pay for the recommended station and public for $7.3 billion, or 38.68% of project cost. Assuming
realm improvements around Penn Station as well government entities only provide 10% or project
as a portion of the Gateway and Moynihan Station costs, or $2.3 billion, taxes will account for 54% of
projects. project costs, or $10.2 billion.

Comparable recent projects in New York, such as In addition to taxes, the passenger facilities surcharge
East Side Access, the Access to the Region’s Core could be raised to account for a higher percentage
Tunnel (prior to cancellation), and Second Avenue of the total if agencies are unable to raise necessary
Subway each received approximately 30% of their taxes. A track-access fee could also be charged to
funding from the federal government, in the form account for transit agencies or political entities that
of Federal Transit Administration New Starts grants. are unwilling to provide funding for the station. The
Additionally, each project received approximately track access fee could be indexed to account for a
10% direct support from either New York State or proper percentage of the total project cost.

SCENARIO 1 SCENARIO 2 SCENARIO 3

Reimagining Penn Station 139

Financing railroad operations, including tracks, platforms, and
stations.
A financing strategy will be necessary for the
redevelopment of Penn Station, as significant cash Numerous projects mentioned elsewhere in this
flows will not be expected until the new station is report, including the Alameda Corridor and Denver
completed and surrounding development begins to Union Station, have taken advantage of this financing
produce revenue. Thus, policy makers must decide option. RRIF is currently authorized for $35 billion in
among a series of regularly used financing tools to revolving debt, and though a new Penn Station could
implement the Penn Station project. Several leading only be expected to be financed through a part of
examples of financing mechanisms are outlined that total fund, it nonetheless provides a promising
below. opportunity for low-cost financing.

Transportation Infrastructure Finance and Grant Anticipation Revenue Vehicles (GARVEEs)

Innovation Act Loan (TIFIA)

Should the Penn Station redevelopment qualify for

The TIFIA program provides junior-level debt to federal aid, financing could come through GARVEEs,
major surface transportation projects at Treasury where expected grant revenue is securitized, offering
Bill rates for a 35-year period. TIFIA features flexible up-front revenue to more quickly deliver the project.
repayment terms, including deferred repayment GARVEEs may form a portion of the final financing
terms, and was expanded by MAP-21; in FFY 2013, the package, but the absence of sustained federal
program will provide $1 billion in financing, which investment in large-scale infrastructure increases the
will support approximately $10 billion in total loans. risk of this option.
49 percent of a project’s total debt can be supported
by TIFIA loans. The Penn Station project can utilize Public-Private Partnerships (P3s)
TIFIA funding to support private investment. As
junior debt, TIFIA will provide additional support for A final financing option is public-private partnerships,
private capital. where a consortium of private interests agrees to
design, build, finance, operate, and maintain the
Railroad Rehabilitation and Improvement facility in exchange for a stream of revenue (likely
Financing Loan (RRIF) through user fees, as described above). While this
model is common internationally and increasingly
Established in 1998, RRIF offers freight and passenger used here in the U.S., the uncertainty of user fee
rail projects the opportunity to borrow at treasury revenues may make this concession model less
interest rates for projects that expand or improve attractive to investors.

The federal TIFIA program

has been used to finance
numerous station
redevelopments, including
the Transbay Transit
Center in San Francisco
(Image Source: Transbay
Joint Powers Authority)

Source: Transbay Joint Powers Authority

Reimagining Penn Station 141

 Costing To arrive at an estimated cost for station construction,
the studio looked to comparable projects to facilitate
Having established the possible revenue sources the itemized costing framework. Washington Union
to fund a new Penn Station, the next step is to Station is undergoing substantial renovations on the
determine what the price of that redevelopment scale of the studio’s proposal for Penn Station. The
will be. This price will include only Phase I and Phase renovation of Union Station will expand platforms,
II of construction. Phase I includes the completion of create a new headhouse, build a new structure
the Farley Post Office renovation (Moynihan Station over the tracks, and work with private developers
Phase 2) and the building of the Gateway Tunnel on ground-lease developments. Thus, costing for
project. The Moynihan Phase 2 project is calculated the station was considered an appropriate proxy for
at $700 million based on estimates currently being the new Penn Station. Additionally inputs from the
prepared by the Moynihan Station Development Fulton Street Station project in Lower Manhattan
Corporation. The Gateway project is being calculated were also considered.
at $15 billion. This figure accounts for the new tunnel
under the Hudson River, mining and excavation of In order to corroborate the project estimate of $3.8
the Penn South Station site, acquisition of the real billion using unit costs, the studio conducted an
estate at Block 780, and anticipated cost increases analysis of Washington Union Station on a cost per
reported recently for the project. million square feet of constructed space. The total
project cost at this station is $1.75 billion per million
Phase II will be the Penn Station rebuild and is square feet of constructed space, which includes
estimated to cost $3.8 billion. The rebuild costs construction and appropriate markups. There will be
were divided into two high-level categories for approximately 1 million square feet of station area
estimate purposes: station costs and public realm and 1 million square feet of track and platform area
improvements. Station costs include interior space in the new Penn Station. Thus, the total cost for the
within the station, the trainshed and station elements, new station using this method is approximately $3.5
track and platform configuration and public right of billion. Adding additional costs for public realm and
way construction necessary for construction. Public connection to Herald Square ($215 million) raises
realm improvements encompass streetscaping the cost roughly $3.7 billion, which is in line with the
around the station, a landscaped greenway and studio’s per unit cost of $3.8 billion.
a pedestrian passageway to Herald Square. The
price for each item in the broader category was Interior Space within the Train Station
determined on a per unit basis to arrive at a total
cost for the category. Station construction costs include public space, the
train room, public station circulation, ticketing and
The subtotal construction costs, which include passenger information areas, retail space, and back-
station costs and public realm improvements, of-house space. Public space is the largest spatial
total $1.2 billion. These costs were inflated 40% for component of the station, with waiting areas, the
construction contingencies, which include potential concourse and other major facilities. Back-of-house
changes in the project’s scope. Soft costs are an includes facilities such as storage and locker rooms,
additional 65% markup on the subtotal construction office space, while utilities are the major water,
costs plus construction contingencies. Soft costs electric, and gas components.
include professional services such as engineering,
design, architecture and legal. Additionally, Trainshed and Station Elements
the subtotal construction costs, construction
contingency markup and soft cost markup costs To estimate the cost of the trainshed, estimates were
were inflated 35% to account for demolition and developed for the costs of the roof and structural
site preparation costs and other uncertainties such support that would be required for the building.
as environmental remediation; note, we are not Additionally, elements such as exterior walls and
factoring acquisition costs for MSG or 2 Penn Plaza glazing, entrance portals, entry vestibules, and
in this cost. skylights were estimated for the project.

142 PennDesign Planing Studio 2013

 Phasing systems. To improve access to existing and future
facilities, a pedestrian passage will be built to
Phasing is a critical part of the redevelopment reconnect the new Penn Station to Herald Square
of Penn Station. Making difficult decisions about Transportation Center. In addition, provisions for
what to build and when to build it is not just an connections to future subway station boxes will also
engineering challenge; it represents a political be constructed in anticipation of new Seventh and
balancing act between competing interests and Eighth Avenue subways.
a public eager to see immediate results. Phases I
and II include the primary elements that will make It is also important to consider that public right-
Penn Station a globally competitive landmark, while of-way will be disrupted during redevelopment of
leaving room for additional investment both in the Penn Station. Therefore, reconstruction of surface
public realm and in the station’s capacity itself. infrastructure during and post-construction will be
necessary to maintain pedestrian flow. The primary
Phase I areas for interim and final public right-of-way
construction will be 30th and 31st Streets and 7th
Penn Station will be redeveloped in phases, the first
and 8th Avenues.
of which will involve site clearance and acquisition
around the station. In order to fully redevelop Penn Future Phases
Station, Madison Square Garden and Two Penn Plaza
must be removed from the site, with the Garden Following successful execution of Phases I and II,
relocated to a site determined by key stakeholders. additional improvements will be made to further
This critical move will allow for full redevelopment enhance the newly redeveloped Penn Station and
of Penn Station. surrounding district. These will include site assembly
by private developers or public agencies. At this
During the initial phase of construction, LIRR, NJT, time proposed sites for future development include
and Amtrak trains will be shifted to the new LIRR blocks 779 and portions of block 757, 783, and 807,
East Side Access Station, allowing construction corresponding to the Empire Center described
to continue without interrupting service for Long above.
Island or New Jersey commuters.
Future phases will include additional transportation
Additional site acquisition required for Phase Two improvement and additional site acquisition and
construction includes portions of blocks 754 and 806 preparation. Transportation improvements to
adjacent to block 781, the site of Penn Station. Joint be addressed will be new 7th and 8th Avenue
development above sites acquired in Phase I will be subway stations utilizing the pedestrian passages
a part of future phases through long-term ground constructed within Penn Station during the initial
lease contracts with real estate development firms construction phases, linkage to 34th Street Bus
specializing in mixed-use, high-rise development. Rapid Transit, and an extension of the High Line
to Penn Station. Each of these improvements will
Phase I will also include the construction of the
enhance transportation connections in and around
Gateway Project’s tunnels and Penn South Station,
the new Penn Station. Future phases will also include
as well as the development of Moynihan Station on
additional real estate development through long-
the Farley Post Office site west of Penn Station.
term ground leases. Additional development will
further improve the Penn Station district and offer
Phase II
new state-of-the-art office, residential, and retail
space.
Complete renovation and redevelopment of the
existing Penn Station will be the primary component
In addition to the improvements previously
of Phase II. Everything in the current station will be
described, long-range planning should begin
reconstructed down to the track and platform level,
to bring online additional East River tunnels and
including realignment of columns and structural
Hudson River tunnels. While not essential to relieving

144 PennDesign Planing Studio 2013

leadership is subject to the governors of New York purpose. In projects from Manhattan’s West Side to
and New Jersey, future political uncertainties could the U.S. shore of Niagara Falls, ESDC has shown it
make effective project delivery a difficult task. can support subsidiaries that range in function from
station design to district revitalization to economic
Empire State Development Corporation Subsidiary development. The Penn Station subsidiary would
effectively combine these various facets to deliver
The Empire State Development Corporation, New the new station and surrounding district. And as a
York’s state economic development agency, already state-run agency, the subsidiary could issue state-
has nine subsidiaries, including the Moynihan backed bonds (at lower interest rates) to pay for
Station Development Corporation. The project those developments.
champion, historically embedded in New York State
politics, will be able to garner support for a new To gain these advantages, however, the railroad
Penn Station at the state’s highest levels. An ESDC operators would cede control of the project. This
subsidiary, therefore, is one of the more desirable could result in the deprioritization of station elements
models because of its status as New York State vital to Amtrak, New Jersey Transit, and Long Island
entity, which will enable the political push for project Rail Road, threatening their expected status as
delivery to come from the Governor and other high- primary supporters. There are political drawbacks
ranking state officials. as well. The entity could face opposition from New
York State legislators: Sheldon Silver, Speaker of the
A primary benefit of extending this model to the New York State Assembly, threatened to vote against
Penn Station redevelopment would be a seasoned approval of the Moynihan Station Development
parent corporation for a specific project-driven Corporation in 2006 because he felt it would only

Renovations to Denver’s
Union Station are being
completed under the
aegis of the Denver Union
Station Project Authority,
a single-purpose entity
composed of entities from
the city, regional agencies,
and the state DOT.

Source: DUPSA

Reimagining Penn Station 147

 benefit New Jersey riders.18 Additionally, an entirely infrastructure projects on the level of a new Penn
New York State run organization may leave out the Station since the Tennessee Valley Authority in 1933.
interests of New Jersey and create an obstacle to The studio views this option as feasible, yet the least
successful project delivery. desirable as achieving approval from Congress can
be a long, arduous process.
Port Authority & ESDC Subsidiary Combination
But even though there is little precedent for
Combining multiple agencies or departments for chartering an agency to deliver a project like a new
project delivery has several precedents (see Hong Penn Station, there are some advantages to the idea.
Kong Air Programme case study), and a combined First, a federally chartered special purpose authority
PANYNJ and ESDC subsidiary--or as a joint venture would have the ability to borrow at U.S. Treasury
between the two organizations, as in the existing rates. Although other delivery entities could also
Moynihan Station Development Corporation-- borrow at U.S. Treasury rates by applying for federal
would have numerous benefits, making it a desirable credit programs such as TIFIA or RRIF, federally
option for project delivery. The entity would be chartered special purpose authorities can borrow at
able to leverage resources and expertise from these low rates for their normal tax-exempt bonds.21
both organizations. The PANYNJ has substantial A federally chartered special purpose agency would
experience in delivering large-scale infrastructure also have the ability to gain direct Congressional
projects, while ESDC subsidiaries are well-versed authorizations and appropriations. In the case of
in site-specific enhancements and economic poor market conditions, it would help to have the
development. The combination of ESDC and PANYNJ lever of a federal charter.
would create an entity that predominantly has New
York influence, but receives input from New Jersey. However, a federally chartered special purpose
This entity is thus desirable as the project champion district has several disadvantages. First, it would
will be primarily looking to New York’s leadership to be difficult to deliver the station without a local or
push forward, but will also need support from the state champion in charge. Since a new Penn Station
Governor of New Jersey. However, a joint agency would most directly benefit New Yorkers and the
would still have many of the weaknesses of both its residents of states along the Northeast Corridor, a
constituent parts, including the diminished budget local or state champion is crucial to advancing the
of the Port Authority and the absence of input from project. Second, the federal government carries a
rail providers. poor public perception in delivering infrastructure
projects through repeated underinvestment
Federally Chartered Special Purpose Agency in transportation infrastructure and funding of
earmarked projects at the expense of those with the
The U.S. federal government, through the powers of
greatest public benefit. A federally chartered special
Congress, could charter a special purpose authority to
purpose agency tasked with delivering Penn Station
deliver a newly envisioned Penn Station. Structurally,
would have to operate in a transparent manner that
this would be an independent government unit that
convinces the public that Penn Station produces
would exist separately from, and with substantial
national benefits worthy of a federal charter.
administrative and fiscal independence from,
general purpose local governments in the tri-state
region. The federal government has not chartered a
special purpose authority for delivering large-scale

148 PennDesign Planing Studio 2013

 London’s Saint Pancras
International is a model
not only for station
design but for ambitious
construction and project
delivery.

Reimagining Penn Station 149

Source: J. Appellar, 2013

150 PennDesign Planing Studio 2013

CONCLUSION
Having put forth analysis of historic and existing
conditions, a series of proposed interventions, and
a comprehensive implementation plan, the work of
this studio is nearly complete. What remains is a final
question - “Where do we begin?”

Reimagining Penn Station 151

FINAL THOUGHTS MOVING FORWARD TOWARD MAKING THE VISION A REALITY

R eimagining Penn Station involves the capacity to think beyond existing

barriers in order to invest in a better future. The vision presented in
this report seeks to reform both past and present conceptions of the
station, the district, the city, and the region. Yet while our expectations
may require many to suspend their existing beliefs in what Penn Station
can offer, this plan lays the foundation for others to build upon, to carry
this vision through to fruition.

The success of this vision is contingent on early efforts study, it is vital that action is undertaken by civic
that move the plan forward. The recommendations stakeholders like the RPA and Municipal Arts Society
in this report include long-range intervention and now to ensure the realization of a new Penn Station
implementation strategies; it would be prudent in the years to come.
to consider those steps that can be undertaken
now. With this set of “action steps”, the vision of a Key to this action will be the decision of the New
new Penn Station will gain the necessary traction York City Planning Commission regarding the fate
to advance the work of reclaiming a world-class of Madison Square Garden. The commission is
gateway for New York and improving connectivity currently debating MSG’s proposal for an “infinite
along the Northeast Corridor. extension” to their special use permit above Penn
Station. Should the commission instead opt for a
These steps begin with a coordinated public ten-year extension, coordinated planning around
outreach campaign around what this report has the future of the Garden—and Penn Station—could
called the Penn Station Imperative. Given the begin in earnest.
confluence of events that have culminated in this

152 PennDesign Planing Studio 2013

Visualizing the Evolution

Early 20th Century Early 21st Century Mid-21st Century

Penn Station waiting halls

through the years

Sources: Library of Congress; M. Moran 2012

Finally, stakeholders should pursue the success However, none of these steps alone—or, indeed, all
of Amtrak’s NEC Future process. The Northeast of them taken together—will ensure a new Penn
Corridor Commission is currently undertaking a Tier Station. For that vision to succeed, public and private
1 Environmental Impact Assessment of the corridor, interests around the region must work together to
analyzing the potential economic, environmental, prioritize the station and related investments in the
and social impacts of expanded regional and years to come. A comprehensive and sustained
catalytic high-speed rail service in the megaregion. campaign will be required to ensure that Penn
Penn Station is the lynchpin of this network, and the Station once again befits Charles McKim’s vision of
completion of Amtrak’s work will pave the way for a monumental gateway at the core of the strongest
improved rail service at the station. economic region in the world.

The new station will

once more lay claim to
greatness in New York City

Source: Library of Congress

Reimagining Penn Station 153

Source: J. Appelar

A.2 Reimagining Penn Station

A P P E N D I X
Our vision for a new Penn Station involves several
in depth analyses spanning a wide range of
transportation, preservation, architecture, and
economic issues that deserve inclusion in this report.
The following materials explore our work in more
detail and provide further perspective into the ways
in which our team came about designing a new
Penn Station for New York City.

Included in this section: recommendations

for preserving the heritage of Penn Station;
environmental design studies; district analyses; and
financial projections.

PennDesign Planning Studio 2013 A.3

APPENDIX

TABLE OF CONTENTS

Source: George Bellows 1907 “Excavation of Penn Station”

A.4 Reimagining Penn Station

R E F E R E N C E S Cited Works..............................................................................................................................A.6
SECTION I
Resources...................................................................................................................................A.7

PRESERVATION Penn Station Historic Timeline...................................................................................A.8

SECTION II
McKim’s Station Typology Analysis.......................................................................A.11

Recommendations for Preservation...................................................................A.14

ARCHITECTURE Environmental Design Analysis..............................................................................A.16

SECTION III
Irradiance Studies..............................................................................................................A.20

MIDTOWN WEST Land Use and Zoning.....................................................................................................A.24

SECTION IV
Unused F.A.R. .......................................................................................................................A.26

Special Districts...................................................................................................................A.26

Business Improvement Districts ...........................................................................A.28

Figure Ground & Nolli Map........................................................................................A.30

F I N A N C I N G Ground Lease Assessment.........................................................................................A.32

SECTION V
Charges Assessment.......................................................................................................A.33

Final Presentation..............................................................................................................A.34
PRESENTATIONS
SECTION VI Foundational Heritage Research...........................................................................A.56

PennDesign Planning Studio 2013 A.5

 report references APPENDIX SECTION I

Implementation | Realities

1. http://www.mta.info/capital/future/east-side-access.php

2. http://www.mta.info/capconstr/sas/index.html

3. Heanue, Kevin E., Guidebook for Integrating Freight into Transportation Planning and Project Selection
Process, (Washington: Transportation Research Board, 2007), Page 151.

4. http://www.panynj.gov/about/facilities-services.html

5. “Alameda Corridor Agency Schedules Construction of Pacific Coast highway Grade Separation,” Alameda
Corridor Transportation Authority, February 13, 2003, http://www.acta.org/newsroom/Releases/Microsoft_
Word_-_PCH_contract_release_final_2-13-03_.pdf

6. Agarwal, Giuliano, Redfearn, “The Alameda Corridor.” White Paper: University of Southern California, June
2004.

7. Moynihan Final Environmental Impact Statement,” Accessed at http://www.empire.state.ny.us/Subsidiaries_

Projects/MSDC/MSDC_FEIS.html.

8. Amtrak timetables at http://www.amtrak.com/train-schedules-timetables, LIRR timetables at

http://mta.info/lirr/Timetable/, and NJ Transit timetables at http://www.njtransit.com/sf/sf_servlet.
srv?hdnPageAction=TrainTo; 261 weekdays and 104 weekend days were used to estimate annual number
of scheduled trains; “Moynihan Final Environmental Impact Statement,” Accessed at http://www.empire.
state.ny.us/Subsidiaries_Projects/MSDC/MSDC_FEIS.html.

9. https://www.dot.ny.gov/programs/repository/TCMC-Interim-Report.pdf and increased using inflation

calculator from http://www.bls.gov/data/inflation_calculator.htm.

10. http://www.fta.dot.gov/documents/MAP-21_Fact_Sheet_-_Fixed_Guideway_Capital_Investment_Grants.
pdf

11. https://www.dot.ny.gov/divisions/policy-and-strategy/public-transportation/funding-sources/SDF

12. https://www.dot.ny.gov/divisions/policy-and-strategy/public-transportation/funding-sources/STOA

13. Federal Transit Administration. “Annual Report on Funding Recommendations, Fiscal Year 2011, New Starts,
Small Starts, and Paul S. Sarbanes Transit in Parks Program. Access to the Region’s Core. Northern New
Jersey.” November 2009.

A.6 Reimagining Penn Station

14. http://www.bloomberg.com/news/2013-03-06/mta-east-side-access-cost-rises-to-8-76-billion-dinapoli-
says.html ; http://www.osc.state.ny.us/osdc/rpt12-2013.pdf

15. http://www.dnainfo.com/new-york/20120619/upper-east-side/second-avenue-subway-project-gets-
197m-from-federal-government ; http://www.mta.info/capital/future/avenue-subway.php; http://www.fta.
dot.gov/documents/100_NY_New_York_Second_Avenue_Subway_Phase_I.pdf

16. http://www.panynj.gov/about/facilities-services.html

17. http://www.panynj.gov/corporate-information/pdf/annual-report-2011.pdf

18. http://www.nysun.com/new-york/silver-says-hell-again-oppose-moynihan-station/41481/

19. Airport Core Programme Highways Projects,” Government of Hong Kong, http://www.hyd.gov.hk/eng/
road_and_railway/airport/

20. Linderoff, Dave. “The Man Getting Hong Kong’s Airport Off The Ground.” Bloomberg Businessweek,
November 27, 1994.

21. Dave Flessner, “TVA sells bonds at record low rate,” http://www.timesfreepress.com/news/2012/dec/20/
tva-sells-bonds-at-record-low-rate/?businesstnvalley, December 20, 2012.

District Design

City of New York, Department of City Planning. “Zoning Districts: Special Districts.” 2013. http://www.nyc.gov/
html/dcp/html/zone/zh_special_purp_dist.shtml

City of New York, Small Business Services. “SBS - Neighborhood Development - Business Improvement Districts.”
2013. http://www.nyc.gov/html/sbs/html/neighborhood/bid.shtml

Bryant Park Corporation. “Bryant Park | Company Overview”. 2013. http://www.bryantpark.org/about-us/

management.html

Urban Land Insitute. “ULI Case Studies: 34th Street Streetscape Program.” 2008. http://casestudies.uli.org/Profile.
aspx?j=8109&p=5&c=24

Flatiron 23rd Street Partnership. “About Us.” 2013. http://www.flatironbid.org/about.php

New York City Land Use, Zoning, and Tax Roll Data, 2013: gis.nyc.gov/doitt/nycitymap/
template?applicationName=ZOLA & nyc.gov/html/dcp/html/landusefacts/landusefactshome.shtml

PennDesign Planning Studio 2013 A.7

 Preservation Recommendations

Incorporate McKim’s concepts into new design Although reconstructing the original Penn Station
is not recommended, the new design should
incorporate the concepts employed by Charles
McKim. These include the procession of spaces,
use of light, thorough knowledge of classical
architecture, and the ability to evoke a sense of awe.

Source: Library of Congress

Documentation of Remaining Original Fabric Much of the original fabric was lost during the
demolition of the headhouse in the 1960s. Those
few pieces that remain intact are important for
telling the story of this great architectural icon.
Efforts should be made to identify and locate any
remaining original fabric in the station and to both
document it and use it in the new design.

Source: MYNC

Historic interpretation- Didactic Signage It is impossible to recover the lost Penn Station but it
is possible to remember it and to celebrate its legacy.
Didactic signage should be used to tell the story of
the original Penn Station and to show how the site
has changed over time. The existing interpretation
is not adequate to explain the importance of this
building and its fate.

Source: MNYC

Create New Station that Fulfills Mission of Original Cassatt’s envisioned Penn Station to be both a
monumental gateway unto itself and to be the
center of a thriving district. The current site meets
neither of these needs. Any future design should
take on the challenge of following through on the
original mission of the building as a connection to
both the past and the future.

Source: Library of Congress

A.14 Reimagining Penn Station

Source: A. Rose, The Demolition of Penn Station, MCNY

PennDesign Planning Studio 2013 A.15

 sustainable design APPENDIX SECTION III

Station Roof Environmental Analysis

“The roof structure of Penn Station must be placed The following images reflect the detailed study
within the context of New York City’s general that led to the development of a new roof for
climatic features. The climate of New York State is Penn Station. It is not enough to simply design
broadly representative of the humid continental for aesthetics and function. Today we must also
type, which prevails in the northeastern United design for resiliency and efficiency, and hold
States. Under the Köppen climate classification, ourselves to higher standards of accountability for
New York City experiences a humid subtropical the sustainability of civic design. As such, a careful
climate (Cfa) nearing the humid continental climate review of environmental factors served as a basis
(Dfa). The city is warmer than the rest of New York for the design of Penn Station’s most visible new
State, due to its proximity to the ocean, and is the structure: the roof of the main hall.
northernmost major city in North America with the
humid subtropical categorization.”

Source: Weather Tool

Figure 1 | The psychometric chart shows the ideal comfort level (marked in yellow) in terms of humidity and
barometric pressure. Since New York City is cold for more months of the year than hot, one of the roof’s principal
tasks is to protect the interior during the winter. New York City’s hot and humid summer months require that
the roof also protect against solar radiation and use shading to equalize and comfort the building during the
warmer times of the year.

A.16 Reimagining Penn Station

 MARCH 21st

JUNE 21st

SEPTEMBER 21st

DECEMBER 21st

Figures 2.1-2.4 | On-site shadow range: 10am - 5pm

PennDesign Planning Studio 2013 A.17

 9 a.m. 12 p.m. 4 p.m.

MARCH 21st

JUNE 21st

SEPTEMBER 21st

DECEMBER 21st

Figures 3.1-3.12 | (above) Shadow display studies continued

Figures 4.1-4.16 | (opposite) Movement of the sun over various roof arch types

Figures 4.17-4.24 | (following page) Movement of the sun over the new roof design by season

A.18 Reimagining Penn Station

SPRING

SUMMER

AUTUMN

WINTER

PennDesign Planning Studio 2013 A.19

 SPRING

SUMMER

AUTUMN

WINTER

TRANSPARENT ROOF 9 AM 12 PM 4 PM

MARCH 21

JUNE 21

DECEMBER 21

A.20 Reimagining Penn Station

Element Initial Materials U-Value Emissivity METAL PROPERTIES
Interior Glass Single Glaze Aluminum Frame 6 0.1
Exterior Glass (vertical) Single Glaze Aluminum Frame 6 0.1
Exterior Glass Roof Panels Transluscent Skylight 5 0
Exterior Metal Roof Panels Corrugated Metal Roof 7.1 0.89
Mullion Stainless Steel 5.55 0.9
Underground Retail Framed Plasterboard 2.2 0.9
Street Level Retail Brick Concrete Block Plaster 1.88 4.4
Platforms Concrete Slab on Ground 0.88 0.9
Floor Slabs - Level C Concrete Floor Suspended 3 0.9
Floor Slabs - Level A & B Concrete Floor Suspended 3 0.9
Site Blocks External Paving 3.418 0.9

Element New Materials U-Value Emissivity

Interior Glass Single Glaze Aluminum Frame 3 0.9
Exterior Glass (vertical) Double Glaze Low Emissivity Aluminum Frame
0.88 0.9
Exterior Glass Roof Panels Double Glaze Low Emissivity Aluminum Frame
0.88 0.9
Exterior Metal Roof Panels Insulated Metal Deck 0.55 0.89
Mullion Stainless Steel 5.55 0.9
Underground Retail Reverse Brick Veneer R15 0.49 0.9
Street Level Retail Reverse Brick Veneer R20 0.39 0.9
Platforms Concrete Slab_Tiles on Ground 0.88 0
Floor Slabs - Level C Concrete Floor_Timber Suspended 2.16 0.9
Floor Slabs - Level A & B Concrete Slab_Tiles on Ground 0.88 0
Site Blocks External Paving 3.418 0.9

Figures 5 | (above) Table of metal properties used to assess the new roof material

Figures 6.1-6.18 | (below) Renderings of light transfusion through a grid roof versus a transparent roof

9 AM 12 PM 4 PM GRID ROOF

MARCH 21

JUNE 21

DECEMBER 21

PennDesign Planning Studio 2013 A.21

 ORIGINAL MATERIALS NEW MATERIALS

PLATFORM LEVEL
MARCH 21

JUNE 21

DECEMBER 21

LEVEL A - CONCOURSE LEVEL

MARCH 21

JUNE 21

DECEMBER 21

A.22 Reimagining Penn Station

 ORIGINAL MATERIALS NEW MATERIALS

LEVEL B - MAIN HALL LEVEL

MARCH 21

JUNE 21

DECEMBER 21

Level C - Street Level

MARCH 21

JUNE 21

DECEMBER 21

Figures 7.1-7.24 | Lighting through each level of the station

PennDesign Planning Studio 2013 A.23

 Unused F.A.R.
on the east side of Midtown.
The Floor to Area Ratio (FAR) of a site is the balance
The district also includes, transfer of development
between the area of a building site and the amount
rights, preservation/rehabilitation of buildings,
of buildable square footage that is allowed on the
signage regulations, density limits, and a floor area
site. For instance, an FAR of 1 would allow a one-
bonus for allocations of public plazas, subway
story building that covers the entire site, or a two-
improvements, in the following subdistricts—Fifth
story building that only covers half of the site. FAR
Avenue, Grand Central, Penn Center, Preservation
can also be used to determine sites for potential
and Theater. There are also urban design features
redevelopment by identifying, which buildings and
such as “continuity of street wall and retail uses, off-
sites have less built square footage than what the
street relocation of subway stairs and provision of
zoning code allows. Clusters of under-utilized FAR
on-site pedestrian circulation spaces, are mandated
sites can be locations for larger scale redevelopment
within the district.”
projects. A quantitative analysis comparing current
FAR, maximum FAR, and existing building and lot size
Special Garment Center District
identifies opportunities for large redevelopments
within the Impact Area. This analysis uses a 50% Home to New York’s center for fashion, textiles
threshold of unused FAR on the site as a benchmark and apparel manufacturing, this district boasts
for a priority development opportunity. In addition an array of historic buildings with wholesale and
to using the FAR metrics, unused sites of 30,000 showroom uses. However, New York’s garment
square feet or more are classified as soft sites. Larger manufacturing sector has experienced a steady
soft sites, and thus more desirable for planned decline, as it competes with globalized fashion
unit redevelopment, are defined as parcels with centers and textile industries. In effort to preserve
an under-utilized FAR of more than or equal to 50 this manufacturing sector, the City enacted the
percent and greater than 50,000 square feet. Special Garment Center District zoning ordinances.
These specific zoning rules restrict certain uses in
Special Districts
large areas of the district to maintain affordable
New York City’s Planning Commission has designated manufacturing rents. These areas are identified as
special zoning districts since 1969 to “achieve specific Preservation Areas on selected mid blocks between
planning and urban design objectives in defined West 35th and West 40th Streets west of Broadway.
areas with unique characteristics. Special districts “East of Eighth Avenue, residences and hotels are
respond to specific conditions; each special district not permitted and the conversion of industrial space
designated by the Commission stipulates zoning to office use is permitted only by certification by the
requirements and/or zoning incentives tailored to chairperson of the City Planning Commission that
distinctive qualities that may not lend themselves an equal amount of comparable floor area has been
to generalized zoning and standard development.” preserved for specified industrial uses. Additionally,
Special Districts allow the city to promote specific between Eighth and Ninth Avenues, conversion of
planning goals without having to change the larger buildings to residential, office or hotel use is
entirety of the zoning code. Special Districts around permitted only by authorization of the City Planning
Penn Station include: Commission.” Inclusionary Housing designated
areas are also identified in this district.
Special Midtown District
Special Clinton District
The Special Midtown District is one of the largest
special districts in New York City. It provides a The Special Clinton District (CL), located just north of
development framework for Midtown Manhattan the Impact Area. This district was created to preserve
that prioritizes: growth, stabilization and preservation. and create a more integrated residential community
Most of the efforts of the district has been to shift in Midtown. It is a very diverse district with a mix of
future development further to the west and south in socio-economic classes.
response to an over-concentration of development

A.26 Reimagining Penn Station

 This District also mitigates the impacts of new Business Improvement Districts
developments through regulations that require
In addition to the special purpose districts, there
appropriate transitions between the lower-scale
are four Business Improvement Districts (BID) in
side streets, and the adjacent Special Hudson Yards
the Impact Area. BIDs are different from Special
District to the south and the Special Midtown District
Purpose Districts in that a BID is a partnership among
to the east. Additionally, an inclusionary zoning
private firms that consent to paying a separate fee
policy, specific to the district, encourages affordable
or tax in order to contribute to the maintenance,
housing and creates a balance of incomes within the
development and promotion of the commercial
neighborhood.
district. BIDs are beneficial for commercial districts
by allowing the local stakeholders take a proactive
Special Hudson Yards District
role in the economic development and public realm
The Special Hudson Yards District, which is located revitalization of the neighborhood. New York City
to the immediate west of Penn Station promotes has 67 BIDs that annually invest over $100 million
mixed-use development and open space along worth of programs and services in neighborhoods
Manhattan’s Far West Side. This new district will across the five boroughs.
see the development of new office, retail and hotel
Bryant Park Corporation
projects as well as new residential opportunities
while maintaining existing ones. The special district
Bryant Park Corporation is comprised of property
includes, “two new corridors for high-density
owners neighboring the park. This district was
commercial and residential development supported
formed to restore historic Bryant Park, which had
by a subway line extension, new parks and an urban
suffered a severe decline in conditions in the 1970s.
boulevard.” This new urban boulevard and public
A 15-year agreement was signed in 1988, entrusting
space will be known as Hudson Boulevard. The
management and improvements to the BPC. The
majority of the redevelopment and mid density
park reopened in 1991 after four years of renovation
developments will form a buffer between the
with a budget six times the level under prior city
developments along the Hudson Boulevard and
management. It is the largest effort in the nation
transition into the existing neighborhoods such as
to apply private management backed by private
the Special Garments Center District located directly
funding to a public park. Bryant Park is seen as a
east of this special district.
model of success in the public realm. It also shares its
management team with the 34th Street Partnership,
Special West Chelsea District
a neighboring BID.
The West Chelsea District directs development
34th Street Partnership
around the High Line Pedestrian Park. The district
guidelines provide for public open space, mixed-use
Created in 1992, the 34th Street Partnership is not
development, and floor area transfer mechanisms or
only largest BID in Penn Station’s impact area but
transfer for developments rights to preserve light, air
also one of the largest BIDs in the country. The area
and views. Within the West Chelsea District, most of
around 34th Street in Midtown Manhattan, once a
the higher density zoned areas are located north of
prime shopping destination, declined in the mid-
the district, closer to Hudson Yards and less dense
twentieth century. The 34th Street Partnership,
areas in the East and South around the Chelsea
covering the blocks north and south of 34th Street
Historic District. There are also inclusionary housing
between Park and 10th Avenues, through which
designations in the area to encourage affordable
they sought to capture the district’s consumer-laden
housing and maintain the typological diversity.
traffic. Altogether, this zone includes 36 million
square feet of commercial space.

A.28 Reimagining Penn Station

 implementation APPENDIX SECTION V

Ground Lease Assessment

The projected stream of ground lease cash flows respectively. Assuming the ground lease rental rate
is calculated as a percentage of land value with is ten percent of land value in the present year (year
periodic rent escalations plus a portion of projected 0) with three percent rent escalations each ten years,
rental revenue produced by improvements to the an annual cash flow of $111.6 million is generated for
land. Parcel values are based on 2012 New York City years one through nine, increasing every ten years
Property Tax Assessment Roll Data. Because there is thereafter. It is assumed that the landowner would
inadequate data on the current Penn Station site, receive five percent of anticipated rental revenues
block 781, and on the Moynihan Station site, block starting in year ten.
755, the value of block 780 was doubled and used
as a proxy based on the fact that blocks 781 and Rental revenues were projected based on average
755 are ‘super blocks’ approximate twice the size of rents per square foot applied to the proposed
block 781. building programs on joint development sites.
Estimated cash flows generated from rental revenue
Based on this methodology, the current Penn are $43.5 million for years ten through nineteen,
Station block 781 and Moynihan Station site block increasing each ten years thereafter. These projected
755 are valued at $329.3 million, block 780 at $164.6 cash flows represent a thirty-year net present value
million, and a portion of blocks 754 and 806 adjacent of $1.6 billion.
to Penn Station valued at $139.7 and $153.3 million

A.32 Reimagining Penn Station

Passenger Facilities Charges Rail Access Charges
Using the 2006-2015 projected incremental increase Average fare increases per passenger are estimated
in Penn Station ridership in the Moynihan Station using the 2013 number of scheduled trains and the
Development Corporation’s Tier I EIS, it is possible estimated number of Amtrak, LIRR, and NJ Transit
to forecast the number of intercity and commuter passengers in 2013 from the 2006-2015 projected
rail passengers for the next 30 years (the length of yearly increases in the 2006 Moynihan Station
revenue streams that most sources of financing Development Corporation’s Tier I EI. In 2013, a $500
require) at Penn Station. Using these forecasts, the
5
RAC amounts to an average increase in fare of $2.38
recommended PFCs yield $243 million in revenues per Amtrak passenger, $2.19 per LIRR passenger,
in year one, and a Net Present Value of $3.7 billion and $1.37 per NJ Transit passenger, yielding a total
over the next 30 years (assuming an 8% discount revenue of $248,980,500 in year one and a Net
rate). Present Value of $3.3 billion over the next 30 years
(assuming an 8% discount rate).

PFC Revenues (2013 Dollars Rail Access Charge Revenues (2013

Year
Discounted at 8%) Dollars Discounted at 8%)
1 $243,517,362 $248,980,500
2 $230,444,830 $230,537,500
3 $218,085,034 $213,460,648
4 $206,398,528 $197,648,748
5 $195,348,082 $183,008,100
6 $184,898,553 $169,451,945
7 $175,016,769 $156,899,949
8 $168,041,944 $159,805,182
9 $159,055,584 $147,967,762
10 $150,557,057 $137,007,187
11 $142,519,490 $126,858,506
12 $134,917,512 $117,461,580
13 $127,727,169 $108,760,722
14 $120,925,842 $100,704,372
15 $114,492,172 $93,244,789
16 $108,405,989 $86,337,768
17 $102,648,247 $79,942,377
18 $98,442,855 $74,020,720
19 $93,238,397 $68,537,704
20 $88,313,350 $63,460,837
21 $83,652,483 $70,511,805
22 $79,241,407 $65,288,708
23 $75,066,528 $60,452,507
24 $71,115,005 $55,974,544
25 $67,374,704 $51,828,281
26 $63,834,158 $47,989,149
27 $60,482,536 $44,434,398
28 $57,309,600 $41,142,961
29 $54,305,677 $38,095,334
30 $51,461,624 $35,273,457

Total $3,726,838,487 $3,275,088,041

Sources: (PFC) Moynihan Station Final Environmental Impact Statement 2006; National Transit Database 2011 Annual Reporting;
(RAC) Aldrich et al (2011), “Commuter Rail Transit Price Elasticity of Demand”; http://www.strc.ch/conferences/2010/Vidaud.pdf

PennDesign Planning Studio 2013 A.33